12Th Street Core Little Rock, Ar

12TH STREET CORE LITTLE ROCK, AR

EXECUTIVE SUMMARY

JUMP START INITIATIVE Planning for Prepared for ICAP, Metroplan and The City of Little Rock Sustainable Growth December 2014 ACKNOWLEDGMENTS

CONTRIBUTORS IMAGINE CENTRAL ARKANSAS PARTNERS

METROPLAN Jim McKenzie, Executive Director Richard Magee, Deputy Director/Director of Planning Metroplan Staff

CITY OF LITTLE ROCK City of Little Rock Board of Directors Director Ken Richardson, City Director for Ward 2 Frederick Gentry, Project Manager, Special Projects Administrator Melinda Glasgow, Deputy Project Manager City of Little Rock Staff

CONSULTANT TEAM GATEWAY PLANNING WALKABLE + LIVABLE COMMUNITIES INSTITUTE Scott Polikov, Principal-in-Charge Dan Burden Brad Lonberger, Project Manager Kelly Morphy Kelsey Berry, Deputy Project Manager Todd Clements Rob Parsons Milosav Cekic THE DESIGN GROUP Daniel Church Myron Jackson Stephanie Jackson ICF Ramanitha Jones Kathleen Rooney Whitney Holman Alanna McKeeman Shan Johnson Amy Ross Douglas Benjamin Jim Rice Juan Omar Alonso Scott Ledford Terry Kissinger CATALYST COMMERCIAL Ambika Melville Jason Claunch Brent Barnes Michael Latham Jubran Kanaan Harrison Rue CONTRIBUTERS Hannah Twaddell Leslie Coburn Pepper Santalucia Michael Hathorne Rhea Roberts HORSLEY WITTEN Vanessa McKuin Jonathan Ford Dede Christopher Joseph Henderson Hannah Carlson Stephen Kasacek TABLE OF CONTENTS

I. Executive Summary...... i II. Introduction ...... 1 (a) Why Jump Start?...... 3 (b) Why 12th Street?...... 5

II. Governing Elements: Development, Economics and Policy...... 7 Development: Conceptual Plans (a) Core Mixed-Use...... 10 (b) Cedar and Pine Streets...... 12 Economics: Feasibility + Return on Investment (a) Development Strategy...... 15 (b) Process for Analysis...... 16 (c) Public Investment...... 16 (d) Private Investment Support...... 18 (e) Public and Private Relationship...... 20

Policy: Regulations (a) Zoning Strategy...... 23 (b) Complete + Context Sensitive Streets...... 23

IV. Implementation Strategies...... 25 (a) Planning and Design...... 27 (b) Public/Private Relationships...... 33 (c) Market Activity...... 39 (d) Action Steps...... 42 (e) Consolidated Performance Evaluation Framework...... 45 V. Appendix THIS PAGE INTENTIONALLY LEFT BLANK EXECUTIVE SUMMARY

EXECUTIVE SUMMARY

A key component to the implementation of the Jump Start With this action plan and a committed coalition of implementers Initiative is the recognition of the interdependency that exists from all invested stakeholders (public and private), the 12th between the governing elements of Policy, Development and Street community can revitalize this historic neighborhood and Economics. Each element delicately tied to the others, which help it become a truly successful place. ultimately requires a careful balance between all three in order There is strong support among the stakeholders for ensuring for projects to truly implement. Without an achieved balance, that something progressive happens in the 12th Street Core. the likelihood of a successful implementation will be slim. The action plan’s vision was crafted through the 12th Street Policy, Development and Economics form the regulations, Corridor Vision Plan by Crafton Tull and further explored at the concept plans, fiscal impact and feasibility of the Jump Start building scale level through this process. Support was clear Initiative. Each of these governing elements is tied together with to build on the neighborhood’s culture and focus on its ability strategies for implementation. These strategies are categorized to create stability in the built environment and the employment based on their emphasis, such as Planning and Design, Public- base. Strong concerns for employing locally and educating the Private Agreements and Market Strategies. youth to be progressive citizens is on the minds of every resident. The 12th Street community covers a far greater area than the The 12th Street Core at Cedar and Pine was originally a cultural limits of this plan area. To begin the process of implementing hub for the community, with the city streetcar system stopping on the vision for the 12th Street Corridor, following these strategies 13th Street and the local activity with the theater and elementary will implement this action plan and achieve its goal to revitalize school, this area was a vibrant village center. There had always the neighborhoods, bring back the vibrancy and energy that the been a culture of community gathering and today still contains community had once known, and pave a path for a sustainable some historic buildings around Pine Street and 13th Street, as economy. Forming a sustainable development pattern that well as in the surrounding neighborhood. returns value for reinvestment is feasible and desired, but more The action steps for implementation focus on policy and public importantly, it offers new opportunities for jobs and education. realm infrastructure at first. Constructive policies in zoning, public infrastructure, connectivity and stormwater management mean sustainable development patterns will be able to thrive. In order to attract businesses that employ local residents, focus needs to turn to providing walkable neighborhoods with meaningful local retail, neighborhood services and a variety of residential options. Residential homes, owner-occupied and rental, can be found in the area, though many vacant parcels also exist. The area does have a number of community services, but limited retail choices and even fewer housing options. New construction will build in a sustainable development pattern that works within the existing context and brings up the quality of the public realm for the whole area. This will attract new opportunities and, with the support of City policy, can open up the opportunity for local rejuvenation. The City has invested in public services in the area, in addition to preserving the Willie Hinton Center for community events and services. The next step is to activate the area. With the impeding decay of the Lee Theater on 13th Street, the City can actively participate in the protection of this theater with 12th Street Plan Area Better Community Developers (BCD) to restore this piece of

iii EXECUTIVE SUMMARY

CATALYTIC DEVELOPMENT OPPORTUNITY

A catalytic development is typically the approach to solving the “chicken and the egg” dilemma for development of a place such as the 12th Street Core. Three approaches must be solved for improvements to affect catalytic events.

Public Development

Though the City and other public entities have invested millions of dollars into the area, there are some key public improvements Cedar and Pine Streets Cross Section that will help connect the residential areas adjacent to the core and inspire reinvestment in the neighborhood. By focusing Capital Improvement Funds for street and sidewalk repair in a consolidated area, the investment in this connectivity would increase the likelihood for reinvestment in abandoned and vacant parcels and grow the pie in a collected area. Once the reinvigorated lots are being revitalized and value creation is occurring, those investments can be carried out and further connect deeper into the neighborhoods. The greatest chance for growth in the area is to support the current residents and help them build back their community vibrancy.

Public-Private Development

Through this process, the Lee Theater has been a key focus. This Rendered Perspective along 13th Street process presented an opportunity to perform a structural survey of the historic structure and found that it is structurally sound and history and reactivate the energy in the community. The goal of could be renovated to its original use, or a similar compatible attracting local businesses requires a sense of place in order to use. The process moving forward for the survival of the Lee bring these opportunities to fruition. Theater will need to be a Public-Private Partnership. With the help of the private/non-profit owner, BCD, the City and The two important implementation elements are activation and historic preservation groups, the theater can be revitalized and keeping the flame alive. Having a coalition of stakeholder representatives (neighborhood leaders, business leaders, non- bring back some of the activity that this area once embodied. profits, city staff of all departments, director, Metroplan, religious The key to this process will be: groups, and many others). This will allow a synergy between • Determination of a use that will bring value and activity these groups to form. This synergy will align interests and • Support local jobs and education coordinate activities and projects. There will need to be consistent communication with the residents, businesses, landowners and • Serve as an active and safe place to gather, hold events the City. A coalition group will continue moving this plan and its and use for multiple purposes action steps to help realize the potential of the greater downtown • Be a centerpiece for community culture in the neighborhood area. A special projects administrator or an ombudsman may be an excellent candidate to be assigned as a leader for this It has yet to be discovered what the most appropriate use may coalition in order to host meetings and coordinate information be, though some concepts are: through their extensive communication stream. • An events center that rents out to special groups;

iv • Restoration to a theater again and feature a series of films allocation by Metroplan for implementation of with a local ambiance; infrastructure projects, these updates must be adopted • An education or religious venue. in the first quarter 2015. • Apply these proposed updates to the zoning The opportunities are endless, but there needs to be a common ordinance as a City initiated zoning amendment and goal to fundraise and restore the building first. The fundraising notify the appropriate landowners within the required will require the creation of a business plan and a programming distance or proximity, if necessary for amendments. plan in order to inspire donations for the facility rehabilitation. • This may be processed as both a Map amendment and a Text amendment in the City Zoning Ordinance. Private Development The update does require a rezoning as the base zones would be altered to create a uniform use table for the The ideal location for private development will be the property character areas. across from the new 12th Street Mixed-Use Station. This • It is encouraged that the Cedar/Pine Design Overlay property could see an urban walkable frontage with services zoning be adopted by reference and remains as a and retail on the ground floor, it could also accommodate standalone document, so that the sections do not get residential above and bring in some moderately priced scattered throughout the current zoning ordinance. apartments that will bring needed residences to the Core area. • In addition, the City Zoning Map should reference the Fundraising strategies for affordable housing or mixed-income Cedar/Pine Design Overlay as one district (one zone developments are explored in the Implementation Strategies. labeled CPDO), which allows the Regulating Plan to regulate the breakdown in character areas and SUMMARIZED ACTION PLAN allows the required flexibility to be processed without the need for rezoning or variances. • Allow for appropriate public input, but be sure that all The implementation action plan begins with policy and participants in the session are educated to the basis regulations, and then carefully moves into public-private and purpose of the development code. partnerships and market involvement. Priority of occurrence for • Be sure that letters of support are requested and these items is in order of listing below. Additional action items, submitted for hearing submittals, as it is common strategies and planned performance measures can be found for supporters to not show up for public hearings. under Implementation Strategies, page 42. Documented support is better than hearsay. • Some special work sessions with Planning Commission Near Term Action Steps and the Board of Directors may be necessary and minutes from those events should be documented. □ Adopt this Implementation and Action Plan □ • Prior to any final adoption, any major edits to the • In order to be eligible for any regional funding for Design Overlay must be reviewed and approved by infrastructure improvements, the Implementation and Metroplan. This ensures that the document has not Action Plan must be adopted at the Board of Directors as lost key elements that would support a sustainable the guiding plan for any projects in the 12th Street Core. development pattern, mix of uses, or the context • In order to be eligible for the next round of funding sensitive approach to roadway elements, among other allocation by Metroplan for implementation of elements. infrastructure projects, this plan must be adopted in the • Failure to get approval from Metroplan on edits to the first quarter 2015. Design Overlay may make the project ineligible for □□ Adopt the draft of the Cedar/Pine Design Overlay regional funding for infrastructure, as key elements may regulations unintentionally be removed from the Design Overlay. • In order to be eligible for any regional funding for • Once the document has been reviewed and infrastructure improvements, these updates must supported, proceed through the adoption process at be adopted at the Board of Directors as the zoning a regular Board of Directors’ meeting. document for any projects in the 12th Street Core. • Once adopted, educate all departments on the • In order to be eligible for the next round of funding goals, objectives, and expected outcomes from the

v development code. A special focus on permitting, engineering team to streamline the design and inspection and code enforcement will need to be building process. Key qualifications should include: made for these education sessions. • Experience with green infrastructure □□ Assemble representatives from all stakeholder • Experience with AHTD roadway design (ties into groups to form a Coalition for Implementation AHTD facility) • Include but do not limit to regional and state agencies, • Experience with walkable urban thoroughfares chamber of commerce, non-profits, project area and context sensitive design leaders, staff department, city director and school • Experience on projects requiring the reporting and district representatives. process for federal and regional funding • This group should not have any decision making • Experience with mixed-use roadways and multi- ability, but will instead help organize and educate use trail integration their respective groups on the status and process for • Begin and complete the design and construction implementation of this plan. process. • Regular monthly meetings should be set to ensure consistent news is being delivered to these groups. Long Term Action Steps • A single person should be the lead for this group, perhaps a city employee or ombudsman, and will Details for these Long Term Action Steps are located in the have charge of keeping the plan, setting meetings, Implementation Strategies Section, page 43. keeping minutes and following up on implementation □□ Invest in human capital by strengthening local businesses activities and performance measures. and investing in worker training. □□ Create a Merchants’ Association and build up □□ Preserve historic neighborhood character by rehabilitating membership Lee Theater. • Focusing on building up the membership will round □□ Design and Implement other neighborhood and mixed use out participation from businesses but also get news street improvements out for events and news in the area. □□ Consider a Public Improvement District for maintenance • Once a strong enough membership is available, of landscapes and streetscapes within the whole 12th consider creating a Business Improvement District. Street Core area. This can also be used to fix up needed This will ensure consistent funding for maintenance, infrastructure in the public areas. It can also eventually programming and can even support security needs. expand along the rest of the corridor. □□ Finish and adopt the Complete Streets Ordinance and □ Begin the process for street improvements focusing □ expand to address context sensitive solutions. first on Cedar and Pine □□ Create a city-wide Green Infrastructure Program • Meet with Coalition and Metroplan to understand □□ Work with the Coalition and Merchants’ Association to the requirements of the Metroplan funding source, create a branding and marketing plan for 12th Street Core. application process and eligibility for projects □□ Work with the Coalition and Merchants’ Association to • Apply for funding from Metroplan funding sources if connect 12th Street Core to the wayfinding and lighting these roadways meet eligibility requirements palette of the Greater Downtown Area. This should be • Create a plan to work with Metroplan on the design associated with the branding and marketing plan. process that serves as a win-win for both groups □□ Continue to expand the City bicycle and pedestrian • Focus the request for proposal on the qualitative aspects connections. (connectivity, walkability, economic development, □□ Re-evaluate long-term strategies on an annual or bi- context sensitive design, green infrastructure, etc.) and annual basis. Adjust some long-term to short term and the quantitative aspects (total cost, driveways, access add new focus areas for long-term improvements for 12th management, etc.). Each of the aspects is important, Street Core. but the long-term strategy for Cedar and Pine must be □□ Incorporate on an annual basis, any short-term projects that focused on economic development and qualitative require CIP funding or commitments, into the CIP project list. aspects primarily. □□ Collect and deliver Performance Measure data to • Select a qualified general contractor team and Metroplan.

vi 12TH STREET CORE LITTLE ROCK, AR

IMPLEMENTATION + ACTION PLAN

JUMP START INITIATIVE Planning for Prepared for ICAP, Metroplan and The City of Little Rock Sustainable Growth December 2014 ACKNOWLEDGMENTS

CONTRIBUTORS IMAGINE CENTRAL ARKANSAS PARTNERS

METROPLAN Jim McKenzie, Executive Director Richard Magee, Deputy Director/Director of Planning Metroplan Staff

F TABLE OF CONTENTS

I. Executive Summary...... i II. Introduction ...... 1 (a) Why Jump Start?...... 3 (b) Why 12th Street?...... 5

Policy: Regulations (a) Zoning Strategy...... 23 (b) Complete + Context Sensitive Streets...... 23

G THIS PAGE INTENTIONALLY LEFT BLANK INTRODUCTION THIS PAGE INTENTIONALLY LEFT BLANK INTRODUCTION

1. 2. Provide more transportation Promote equitable, choices affordable housing

3. 4. Enhance economic Federal Livability Support existing competitiveness Principles communities

5. 6. Value communities Coordinate & leverage and neighborhoods Federal policies and investment

Note: Environmental issues are embedded in principles 1, 2, 4 and 6

WHY JUMP START?

In 2012, Metroplan received a $1.4 Million grant from the economics, environmental concerns, community development, U.S. Department of Housing and Urban Development (HUD) municipal codes and regulations and supportive infrastructure to develop a comprehensive regional plan for sustainable investments. Each plan developed through this initiative is development - in this case, the Imagine Central Arkansas. intended to be replicable and feasible and as such will be Implementation is a key feature of this program and Metroplan developed to educate, illustrate, regulate and set a path for is fostering this through the Jump Start Initiative. The purpose implementation - helping to Jump Start regional implementation of the Jump Start Initiative is to demonstrate how the Livability of Imagine Central Arkansas. Principles can be integrated into community design and implemented in existing communities to impact the larger region. These plans integrate housing design options, development

3 INTRODUCTION

Regional Map of 12th Street

Legend Study Area 0 0.5 1 2 3 Little Rock City Limits Miles ¯

Sources: Esri, HERE, DeLorme, USGS, Intermap, increment P Corp., NRCAN, Esri Japan, METI, Esri China (Hong Kong), Esri (Thailand), TomTom, MapmyIndia, © OpenStreetMap contributors, and the GIS User Community 12th Street: Regional Context

4 Implement the Imagine Central Arkansas’ Regional 2040 Long Range Plan

Focus on building local capacity to create positive and sustainable growth

The Build development patterns that promote JUMP START local and sustainable market factors INITIATIVE Planning for Harness and grow local funding capacity to Sustainable Growth will: continue sustainable growth

Generate a framework and business model describing how new development and redesigned infrastructure can generate long-term economic growth

Produce a replicable process that can be utilized in similar contexts and grow the pie for neighboring communities

WHY 12TH STREET?

The 12th Street Core in Little Rock has been the focus of many opportunities in recent years. Millions of dollars of public funding Goals for the 12th Street Plan Area has been invested in the corridor, but few of the programs have been coordinated and have had minor development • Develop an implementation and business plan impacts to the area to date. A 12th Street Corridor Plan to move the 12th Street Corridor Vision Plan was adopted that laid out the vision for the corridor and the forward, utilizing techniques to bring various adjacent neighborhoods. The 12th Street Core was the central groups together. location specified for a center of activity for urban residential, • Identify and implement best practices for public employment and commerce. improvements (including sidewalks, stormwater This project was selected due to its current status of having a collection, street crossings, lighting, etc.) vision plan and local support for sustainable development, • Catalyze vacant lot development near the new but lacking the required action plan to implement the vision. 12th Street Mixed-Use Station to take advantage This process will be repeatable to other communities that have of City investment and supporting additional strong visions, but require the business plan to activate the housing types, population diversity and historic vision and the move the initiative forward. preservation, and to support prior community development efforts.

5 THIS PAGE INTENTIONALLY LEFT BLANK GOVERNING ELEMENTS: DEVELOPMENT, ECONOMICS + POLICY Rendered Perspective along 13th Street GOVERNING ELEMENTS: DEVELOPMENT, ECONOMICS + POLICY

DEVELOPMENT: CONCEPTUAL PLAN

An overall concept was reviewed through the 12th Street Corridor Vision Plan. Within the 12th Street Core, this initiative produced an illustrative concept for potential public and private development projects. This building scale illustrative helps to shape the strategies for the implementation plan. The plan for the core area focuses on the goals for this initiative and the 12th Street Core area. The top priority for the concept was to identify best practice improvements for the public realm, including streetscaping and stormwater collection. Streetscaping recommendations take a functional approach, using improved sidewalks and green infrastructure to create a more pleasant environment to walk and ride bicycles. In addition, recommendations take an aesthetic approach by identifying opportunities for a walkable “street plaza” and incorporating street trees. To subsidize the cost for improvements, a focus on the private realm to help prove that development can supply the necessary future value of return, will ease the burden for the City to make the necessary investments. Focusing on the other goal, private development recommendations include options for housing diversity, historic preservation and promoting small business opportunities.

9 DEVELOPMENT: CONCEPTUAL PLAN

Core Mixed-Use

Buildings should be placed against the front property line to allow for extra parking in the rear of the building or lot. Utilize the existing alleys to promote cross access between properties.

New buildings can be built as infill to match the scale and placement of the new 12th Street Mixed-Use Station. Existing businesses could be temporarily relocated to other facilities so that they can be phased into the new building.

Rehabilitating Lee Theater could give some ideas and programming for the vacant parcel and brick multi-level building on either side. Having a plan for expansion of services or a mixed-use project plan could round out any rehabilitation costs and help market a fundraising effort.

13th Street, instead of being closed down, could become a walkable “street plaza” that has liner buildings fronting it. This roadway becomes a secondary neighborhood services and small business retail area that accommodates pedestrians from the heavy traffic on 12th Street.

Liner buildings can be used in a public-private partnership to screen the 12th Street Mixed-Use Station’s parking and provide a revenue source to the City for public improvements. Cedar Street Pine Street Existing Building Buildings and land use north of 13th Street; Blue = Office, Red = Retail, Yellow = Residential, Purple = Civic Oak Street Pine Street

Existing Building Buildings and land use south of 13th Street; Blue = Office, Red = Retail, Yellow = Residential; Purple = Civic

10 11th Street

Cedar Street

Pine Street

12th Street

13th Street

Ook Street

11 DEVELOPMENT: CONCEPTUAL PLANS

CEDAR AND PINE STREETS

As previously mentioned, roadway improvements include most pedestrian facilities. Streetscaping and stormwater improvements can work functionally and aesthetically bringing lower lifecycle costs and higher returns on adjacent building value. This approach to street design is called context sensitive solutions and should be employed throughout the 12th Street Corridor to promote walkability and value creation.

Cedar and Pine Street: Proposed Cross Section

Proposed ROW on Cedar and Pine Streets.

12th Street: Existing Cross Section

Existing ROW on 12th Street

12 Existing Conditions

This existing image shows recent improvements along 12th Street.

Potential Improvements

This photo simulation shows a potential improvement, incorporating a round-a-bout, on-street parking, bulb- outs and some minor median installations. The key is showing new development should be placed close to the street, similar to the placement of the 12th Street Mixed-Use Station.

13 THIS PAGE INTENTIONALLY LEFT BLANK ECONOMICS: FEASIBILITY + RETURN ON INVESTMENT

Development Strategy

Virtuous Cycle of Reinvestment The key to developing a successful and sustainable place is through public/private partnerships. The problem with many agreements for public/private partnerships is that they are often treated as subsidies, where the public entity may not be getting the highest return on its investment. As Jump Start is aimed at creating a sustainable approach to development, it also must look to the future of these places. The initial investment by a public entity must return a rate that will allow the public entity to save for the future repairs and life cycle costs of the investment. When cities build roads, it isn’t enough to think about the cost today and maintenance per year. What happens in 20 years or 30 years when the utilities underneath need to be repaired or the street trees need to be replaced? What happens if disaster strikes; are the values and built pattern set in a way that redevelopment can occur and return the same or higher value? The answers will be determined on a project by project basis, but all should feed into a Virtuous Cycle of reinvestment. A strong return on investment is not the only focus on development. In the beginning of this process, there is a need for initial investment to catalyze development. The key for this process is not to jump out ahead and build investments with no outcome from the private realm. Detailing a project plan that works with the private realm and times the outcomes together with the market at hand is integral to the elements. Make infrastructure design and development a public process, speak to adjacent landowners and business owners to receive their input, and educate on the benefits of this new infrastructure. This will not only stimulate the creativity of “what can happen?” but will activate the investment market in the area.

15 ECONOMICS: FEASIBILITY + RETURN ON INVESTMENT

PROCESS FOR ANALYSIS

Through the Jump Start Initiative, analysis of the potential return on investment is analyzed for both the public and the Probable Cost Breakdown private realm. Development projections were established off of the market assessment absorption values, which sets the Linear Feet of Roadway: 4000 LF potential for the number of units, square feet of retail or office Approximate Cost per LF: $625/LF tenants that could move into an area in a given year (see Appendix). Using this number, we can safely assume that Approximate Cost of Roadway: $2,500,000 if development occurred at these intervals, a conservative Approx. Total Cost of Theater analysis of the development has been achieved. Renovation: $3,250,000 Total Improvement Cost $5,750,000 PUBLIC INVESTMENT

Cedar + Pine Streets

The proposed 12th Street infrastructure concept focuses on streetscape improvements to Cedar and Pine Streets, envisioning a more pedestrian friendly environment and are not included in the cost estimate. Additional study is improving stormwater infrastructure. Improvements include needed to determine the extent of necessary improvements new sidewalks, curb, trees and associated landscape/ associated with streetscape retrofit, especially drainage. stormwater improvements. Depending on topography, soil conditions, and locations of existing infrastructure, proposed bio-retention systems Assumptions: may be adequate to filter and infiltrate stormwater runoff with short piped connections to existing systems for overflow 1. The full length of Cedar and Pine Street within the study during larger storm events. area is approximately 4,000 linear feet, for both streets 8. Street furniture, street light improvements, traffic signals, from 8th Street to 14th Street. overhead utility wire improvements, and police details 2. New 6 foot wide concrete sidewalks. are not included in the cost estimates. 3. Mill and overlay of existing pavement areas to remain. In addition to street improvements, this analysis added the 4. New street trees to be planted approximately 40’ on potential for costs to rehabilitate the Lee Theater. In an effort center within swales. to get the most catalytic effect, this analysis considers that the cost of the theater could be recovered along with the street 5. Green infrastructure improvements included in analysis. improvements over time. 6. Intersection improvements include four 400 square foot curb The assumption on cost is based on rehabilitation for this extension “bump‐outs” and application of special asphalt building on cost per square foot to rehabilitate back to a stamping/color treatment to pavement for crosswalks. theater. The cost per foot is calculated on an average of past 7. Improvements to and relocations of existing infrastructure project scenarios of similar scale and detail.

16 Cedar and Pine Streets Cross Section

Lee Theater Plan

Plan courtesy of Jameson Architects, 2014

17 ECONOMICS: FEASIBILITY + RETURN ON INVESTMENT

PRIVATE INVESTMENT SUPPORT

The following analysis takes the concept of liner buildings along 13th Street into consideration. This effort shows a satisfactory return on investment for a private developer. The way to move this project forward would be through a public-private partnership where the City provides the land and the land is purchased by the developer as development transacts or over time as tenant and rental revenues are collected. Program for potential development: • 9,000 square feet of retail - (4 retail stores at 2,250 square feet) • 10 units of urban residential Table 1 demonstrates a 15 year investment where multi-family, retail and small office are developed. In that 15 year time frame, the development will return profitable revenues and in the instance of a sale, it will pull at a premium for having stable tenants and for being in a well-kept condition.

13th Street

This private investment concept only takes the highlighted potential new construction into consideration.

18 Table 1: Private Developer Pro Forma

Private Development Pro Forma Summary of Results

Year 1 Year 2 Year 3 Year 4 Year 5 Year 6 Year 7 Year 8 Year 9 Year 10 Year 11 Year 12 Year 13 Year 14 Year 15

Net Operating Income Multi family $ - $ 107,176 110,391$ $ 113,703 $ 117,114 120,627$ 124,246$ 127,974$ 131,813$ 135,767$ 139,840$ 144,035$ 148,356$ 152,807$ $ 157,391 For-sale Housing $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ - Office/Commercial $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ - Retail $ - $ 100,004 102,629$ $ 105,216 $ 107,763 111,106$ 113,570$ 115,990$ 119,204$ 122,372$ 125,495$ 128,569$ 131,595$ 134,571$ $ 138,333 Hotel $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ - Structured Parking -$ $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - Total NOI $ - $ 207,179 213,021$ $ 218,919 $ 224,877 231,733$ 237,816$ 243,963$ 251,017$ 258,140$ 265,335$ 272,604$ 279,951$ 287,378$ $ 295,724

Development Costs Multi family $ 1,380,000 $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ - For-sale Housing $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ - Office/Commercial $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ - Retail $ 1,014,300 $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ - Hotel $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ - Structured Parking $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ - Other Infrastructure (1) -$ $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - Total Development Costs$ 2,394,300 $ - -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ -$ $ -

Annual Cash Flow Net Operating Income $ - $ 207,179 213,021$ $ 218,919 $ 224,877 231,733$ 237,816$ 243,963$ 251,017$ 258,140$ 265,335$ 272,604$ 279,951$ 287,378$ $ 295,724 Total Asset Value@ 10% $ 2,957,241 Total Costs of Sale (2) @ 5% $ (147,862) Total Development Costs $ (2,394,300) $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - $ - Net Cash Flow $ (2,394,300) 207,179$ 213,021$ $ 218,919 $ 224,877 231,733$ 237,816$ 243,963$ 251,017$ 258,140$ 265,335$ 272,604$ 279,951$ $ 287,378 $ 3,105,103

Net Present Value @ 10%$ 96,385 Unleveraged IRR: 10.6%

19 ECONOMICS: FEASIBILITY + RETURN ON INVESTMENT

PUBLIC AND PRIVATE RELATIONSHIP Basis for Payback Timeline - Public Investment Return Projections over the course of ten to fifteen years is an appropriate range for the relatively smaller improvements With the overall cost of improvements to Cedar and being made by the public entity. Where more infrastructure Pine Streets, the projected timeframe for payback of the needs are established a twenty to twenty-five year projection improvements is about five to seven years after the first may also be considered. Though these projections are development begins. Assumptions are set after the first showing the full amount of the cost for improvements, keep development because key revenue streams on property in mind that the local match is significantly less than the total tax, ad valorem, are not collected until one year after the amount for public improvements, the more funding that is appraised value is set in the county tax collection system. sourced from outside entities Immediate funds are received in the quarterly payments of sales tax that shops pay into the system nearly immediately after construction. The driver for these developments cannot be just pure retail developments. Focusing on both short and long term advantages, mixed-use developments bring greater return when combining both the near term revenues from retail and the long term values of ad valorem. Building retail alone will require redevelopment more often and will degrade faster. When the buildings are combining retail and other uses, the development will generally last longer and be maintained over a longer period of time. This is because a mix of uses in a development is inherently more resistant to market shifts and economic cycles and allow for reinvestment in capital expenditures, rather than wholesale redevelopment.

system can create value. For example, a rail transit station’s first effect on its surroundings might be an increase in land values due to great access, reliability and safety when the private sector reacts to an investment in TOD. The next effect can be the reduced demand for transportation services from the people living, working, shopping or otherwise enjoying the TOD. This type of land use redirects person-trips to transit, walking or shorter driving trips. Without the TOD, these person-trips would have caused more congestion, increased travel times and 20 greater wear and tear on the transportation system.

The Leander TOD Master Plan, courtesy of Gateway Planning Group, Inc.

The second measure of value capture can be realized through the creation of a de facto master developer environment across multiple parcels controlled by different owners within a given area. This de facto master developer environment is why downtowns create and sustain value over time. But the same dynamic of creating sustainable “downtown” value can be created in suburban locations. Sustained value creation can be leveraged substantially when combining both of these types of value capture. The chart below shows the difference between conventional single-use projects and development under value capture environments. The term “suburban development” (the red line) does not refer to the “where” but to the “how,” in terms of the type of development. These projects are typically isolated and accessible only by driving to them, such Money saved with ACCE as strip-commercial centers or single-use office complexes. Benets Trust is money in In our experience with town planning, we are finding that your organization’s piggy bank. communities that both (i) leverage the transportation system ACCE Benets Trust has been through value capture and (ii) use adjacency predictability providing high quality insurance and Life Insurance through a de facto “master developer” environment are real- Short & Long Term investment services to ACCE member Disability izing value curves such as those depicted for downtowns (the organizations for over forty years. From Dental blue line) in the chart above. 401(k) plans to vision coverage to long term Vision disability, our plans were designed especially Long Term Care For example, in Leander, Texas, our firm planned a 2,000-acre with your employees in mind. 401(k)/Retirement TOD, including the redevelopment of the original downtown and approximately 1,700 acres of new development slated for Find out what ACCE Benets Trust can the greenfield areas east of downtown. The TOD was designed do for your organization. Call us today at (800)394-2223 for more information to harness the growth corridor coming north out of Austin or to request a quote. through a walkable, mixed use plan. The master plan will be implemented through an urban design-based zoning and

12 Chamber Executive Convention 2008 Table 2: Public Investment Pro Forma

Public Investment Pro Forma Summary of Results

Fiscal Impact Year 1 Year 2 Year 3 Year 4 Year 5 Year 6 Year 7 Year 8 Year 9 Year 10 Retail Sales $6,960,450 $7,169,264 $10,471,341 $10,785,482 $11,109,046 $11,442,317 $11,785,587 $12,139,155 $12,503,329 $12,878,429 Property Value $6,165,685 $6,350,656 $7,643,675 $7,872,985 $8,109,175 $8,352,450 $8,603,024 $8,861,115 $9,126,948 $9,400,756 Sales Tax $104,406.75 $107,538.95 $157,070.12 $161,782.22 $166,635.69 $171,634.76 $176,783.81 $182,087.32 $187,549.94 $193,176.44 Ad Valorem $30,828.43 $31,753.28 $38,218.38 $39,364.93 $40,545.88 $41,762.25 $43,015.12 $44,305.57 $45,634.74 $47,003.78 A&P $20,881.35 $21,507.79 $31,414.02 $32,356.44 $33,327.14 $34,326.95 $35,356.76 $36,417.46 $37,509.99 $38,635.29 Total $156,117 $160,800 $226,703 $233,504 $240,509 $247,724 $255,156 $262,810 $270,695 $278,816

Return on Investment Construction Year 0 Year 1 Year 2 Year 3 Year 4 Year 5 Year 6 Year 7 Year 8 Year 9 Year 10 Capital Contribution -$5,750,000.00 Net Cash Flow -$5,750,000.00 $156,117 $160,800 $226,703 $233,504 $240,509 $247,724 $255,156 $262,810 $270,695 $278,816 Net Cash Flow with Terminal Value -$5,750,000.00 $156,117 $160,800 $226,703 $233,504 $240,509 $247,724 $255,156 $262,810 $270,695 $8,444,127

Investment Performance IRR 7% NPV $480,013 Payback Year

Assumptions Fiscal Impact Growth (After Year 10) 0.025 Discount Rate 0.06 Sales Tax Rate 0.015 Millage 5

21 THIS PAGE INTENTIONALLY LEFT BLANK POLICY: REGULATIONS

ZONING STRATEGY options. Neighborhoods streets should have the design to reflect its neighborhood context, just the same as a highway supports its respective uses. Each has a level of attainment for its users, but Focusing on zoning as a tool to guide sustainable development, placemaking requires a level of focus that relates the context to there are some challenges that always need to be considered. set that design. Though car traffic is important, slower speeds are Too often, zoning regulations are either to one extreme, equally important on several levels: not enough regulations and quality control over the built environment, or to the other extreme, over regulating and • Increasing comfort level for pedestrians requiring more than the market can handle. For Jump Start, • Ensuring safety for pedestrians and bicyclists zoning must fall to a range of these options, by creating a • Reducing green house gas emissions window of flexibility that appeals to developers and does • Increasing visibility of storefronts and signage not stifle creativity, but ensuring that predictability is intact for • Increasing awareness of a place to return to the benefit of the municipality, residents and neighbors to the Often, context sensitive streets are claimed to be more costly and development, by having stronger requirements where they are that often leads to a negative reaction to its use. But looking at needed (materials, building placement, heights, etc). the big picture, the context of creating a walkable mixed-use The greatest aspect of this tool is that costs little to establish place, shows another focus. Economic value is not just in the relative to the positive outcome and value generation it supports. cost of laying down the street, it’s in the cost of the lifecycle and Through the Jump Start Initiative, a zoning regulation package what that street does to the area around it. By creating a street based on the form and orientation of buildings, the quality and that is easy to walk to and walk along; that allows diners to sit relationship of the private and public realms, and the vision outside; that allows pedestrians to easily access public gathering from the community, has been developed. This zoning is the spots, public parks, and safe routes to schools, the street is then first step towards establishing the appropriate policy within the unlocking intrinsic value that cannot be realized on any high 12th Street Core. speed roadway. The value of place is based on the meaningful interaction of the public and private realms. Premium values of The zoning process outlines regulations that focus on the public place that focus on the all modes of transportation equally, rather realm as a meaningful place. By creating a window of regulations, than in segments, will garner larger property values, higher sales the goals of development patterns, mixing-uses and creating volumes and long life spans. public spaces are easier to obtain, without needing to consistently request variances. Many of the development patterns that we appreciate and visit abroad, are de-regulated in this code and “Context sensitive solutions (CSS) is a collaborative, allowed to exist by right, whereas in the existing code, it was near to impossible to create a walkable, mixed-use place. interdisciplinary approach that involves all stakeholders to develop a transportation facility COMPLETE + CONTEXT SENSITIVE STREETS that fits its physical setting and preserves scenic, Developing a system of complete streets that utilize context sensitive aesthetic, historic and environmental resources, approaches will impact the economic sustainability of a place, while maintaining safety and mobility. CSS is an while integrating sustainable aspects for the environment. The City of Little Rock has drafted a Complete Street ordinance that focuses approach that considers the total context within which on creating systems of streets that support multiple transportation a transportation improvement project will exist.” options. Taking it one step further, context sensitive solutions imply that the area around the street needs to be considered just as importantly as the traffic load, design aesthetics and transportation -- Federal Highway Administration (FHWA)

23 THIS PAGE INTENTIONALLY LEFT BLANK IMPLEMENTATION STRATEGIES THIS PAGE INTENTIONALLY LEFT BLANK IMPLEMENTATION STRATEGIES

PLANNING AND DESIGN based code will encourage new features such as mixed use buildings and street design that considers all modes 3 Form Based Code of travel. Action Steps Form-based codes are land development regulations that foster • Adopt the form-based design overlay drafted through the predictable built environment results and a high-quality public Jump Start process. realm by using physical form (rather than separating residential, commercial, and institutional uses) as its organizing principle.1 • Train existing and new staff in all departments on the adopted design overlay, including its purpose and intent. Form-based codes address the relationship between building facades and the public realm, the form and mass of buildings in • Train members of the Development Review Committee, relation to one another, and the scale and types of streets and Planning Commission, Board of Zoning Adjustment and blocks.2 The Jump Start public process combined with the form- the Board of Directors to understand the purpose and intent of the code and the benefits of using of the overlay based code helps build up the 12th Street Core and meet the vision in Little Rock. of the community over time. A form-based zoning code also offers Little Rock the opportunity to create a more flexible development • Create a development package for potential submittals that includes a checklist for developers, a user guide on process that leads to a predictable development pattern and high process and expectations from the public and private side, quality development. This will help encourage the development and strategies for meeting the standards in the overlay. As of a pedestrian-friendly, safe and walkable neighborhood with a projects are submitted, take note of consistent requests for stronger sense of community. Some key benefits include: modifications, if many projects are running into the same • Predictable results – The community can control the problems, an amendment to the text or requirements may physical impact of development. be warranted. • Codified equirementsr – A proactive regulation to achieve • Look for ways to compromise on projects. The code is the community vision, as expressed by community meant to be flexible for many situations and there is no members during the engagement process. one straight path to success for everything. • Place-specific egulationsr based on visual guidance – Funding Options Form-based codes are tailored to specific communities, As the draft for the form-based overlay has been submitted to whereas conventional codes are often generic in nature the City, no additional funding needs exist. and do not take into account the character of the existing community. A defining feature of form-based codes is their Partnership Opportunities easy-to-use, illustrative nature both graphically and with a • Lead: City of Little Rock Planning Department to work with carefully crafted, straightforward narrative. other City departments to adopt and implement the zoning. • Greater diversity of community activities – The form- • Support: Local developers

1 http://formbasedcodes.org/definition 2 http://formbasedcodes.org/definition 3 http://formbasedcodes.org/definition

27 IMPLEMENTATION STRATEGIES

7th St

Oak St Interstate 630

7th St Maple St

St Interstate 630

Pine Interstate 630 Interstate 630

8th St Interstate 630

Maple St

Maryland Ave

10th St

Oak St

Lewis St 11th St

12th St

13th St

14th St 14th St Cedar St

Elm St

Legend Neighborhood Street Mixed Use Street Highway Frontage

15th St Cedar/ Pine One-Way 15th St R-4A: Neighborhood Zone Urban Use: Highway Frontage

Maple St Urban Use: Mixed-Use Study Area

Pedestrian-Friendly16th St Pedestrian-Priority Bishop Warren Dr 0100 200 400 600 Note: Parcels. with no designation are considered General Frontage Feet ¯

Table 3 - Form Based Code Performance Measures Form Based Code Adoption Training of staff and members of the Development Review Committee, Planning Commission, Board of Outputs Zoning Adjustment and Board of Directors on the purpose and intent of the form-based code completed. Development package (including checklist, user guide and strategies) created and distributed to all interested developers. Number of project proposals received that meet the standards without major modifications. Number of development projects constructed in the code area. Number of new businesses in (or near) the code area. Outcomes Walk score in the 12th Street Core area. Total number of businesses per 1000 workers. Total acreage of vacant/underutilization land in the code area. Amount of private investment in the code area.

28 Complete Streets + The Transportation Network trucks, buses and automobiles; • Applies to both new and retrofit projects, including design, Complete Streets are streets that are designed and operated planning, maintenance, and operations, for the entire right to enable safe access for all users, including pedestrians, of way; bicyclists, motorists and transit riders of all ages and abilities.4 • Makes any exceptions specific and sets a clear procedure Currently, the City of Little Rock is considering a Complete that requires high-level approval of exceptions; Streets Ordinance. • Encourages street connectivity and aims to create a comprehensive, integrated, connected network for all A Complete Streets policy offers Little Rock the opportunity modes; to create a more pedestrian-friendly, safe and walkable • Is adoptable by all agencies to cover all roads; neighborhood, contributing to a stronger sense of community. • Directs the use of the latest and best design criteria and Some key benefits include: guidelines while recognizing the need for flexibility in • Improving safety. Through the addition of designated balancing user needs; crosswalks, sidewalks, and bike lanes, cyclists and • Directs that Complete Streets solutions will complement the pedestrians are given a prominent place in the street context of the community; landscape and are less likely to be harmed by vehicle • Establishes performance standards with measurable traffic. outcomes; and • Supporting healthier communities. Creating safe places • Includes specific next steps for implementation of the policy. to engage in active transportation and reducing vehicular Action Steps emissions allows residents to enjoy more active lifestyles and reduced exposure to air pollutants. • Adopt the Complete Streets Ordinance that requires that the • Increasing transportation options for all users, including needs of all users are addressed in transportation projects, those with mobility challenges. Instead of just focusing and ensure that city codes are consistent with the ordinance. on automobiles, street design accommodates all users – • Include the documentation of multimodal facilities and a including non-drivers and drivers, young and old, and Complete Street policy with the comprehensive growth and transportation plan, and the master street plan, when those with other mobility issues. updated. • Supporting economic revitalization. Economic • Incorporate appropriate design standards based on the revitalization can occur by creating more connections context for the street being designed. In the case of the between retail destinations, homes, schools, offices, 12th Street Core plan area and Cedar and Pine Streets, healthcare providers, and recreational activities.4 guidance from the form-based code in the Regulating Plan • Lowering transportation costs. By providing community and associated standards for Street Design is appropriate. members with alternatives to automobile transportation, Future transportation project processes should evaluate the Complete Streets policies lower transportation costs since context of the street and use the guidance from the Congress most alternatives are lower cost.5 for New Urbanism/Institute for Transportation Engineers • Improving community interactions. Automobile transportation Complete Streets Manual for Urban Thoroughfares, is often solitary. Alternative modes of transportation enable National Association of City Transportation Officials individuals to interact with the people and the environment (NACTO) guidelines, and other similar best practice around them on the street or in buses. manuals. The National Complete Streets Coalition outlines the key • Incorporate green infrastructure considerations to improve features of an ideal Complete Street policy, which are: the overall management of stormwater and pollutants on the • Includes a vision for how and why the community wants to street, while also improving the aesthetics. complete its streets; Funding Options • Specifies that ‘all users’ includes pedestrians, bicyclists and transit passengers of all ages and abilities, as well as Complete streets strategies do not need to be large-scale,

4 http://www.smartgrowthamerica.org/complete-streets/complete-streets-fundamentals/factsheets/economic-revitalization 5 http://www.smartgrowthamerica.org/documents/cs/factsheets/cs-individual

29 IMPLEMENTATION STRATEGIES

Table 4 - Complete Streets Performance Measures

Adoption of the Complete Streets ordinance completed. Integration of Complete Streets ordinance into the City of Little Rock’s policy and planning documents completed. Outputs Percentage of locally-supported transportation projects in the 12th Street Core area that incorporate Complete Street considerations. Number of street blocks with multi-modal facilities in the City’s master street plan. Number of new pedestrian and bicycle crossings. Miles of new sidewalks or biking facilities in the 12th Street Core area. Percentage of workers commuting via walking, biking, transit or rideshare. Outcomes Walk score in the 12th Street Core area. Percentage of residents living within one half mile of a bike facility. Number of roadway fatalities (of users of all modes) costly construction efforts. By incorporating complete streets • Improved safety policies into all phases of projects – including maintenance • Improved air quality and lower greenhouse gas emissions - incremental progress can be achieved at a low cost. For • Mitigation of heat island effect leading to reduced energy instance, repainting streets with crosswalks is an inexpensive bills way to improve safety and make a street more pedestrian- • Positive impact on local business and property values friendly. For larger scale enhancements, Little Rock can work • Enhanced stormwater management and water quality • Lower pavement maintenance costs with existing transportation funding to incorporate complete streets strategies into new planning and project efforts. From a municipal value perspective, benefit and cost categories to be considered typically include administration Partnership Opportunities and inspection, infrastructure and livability, irrigation and • Lead: City of Little Rock litter, tree removal and disposal, pruning, planting, aesthetic, • Support: Little Rock property owners, Metroplan, Pulaski stormwater, air quality, carbon dioxide, and energy. A recent County, Arkansas State Highway and Transportation study of urban forestry in five US cities found that on a per-tree Department. basis, “the cities accrued benefits ranging from about $1.50- $3.00 for every dollar invested.”7 Implement Policies and Pursue Partnerships to Trees are stormwater management machines. They draw Support the Installation of Green Infrastructure moisture from the ground and intercept and store rainfall, which can significantly reduce local flooding, delay the onset Enhanced tree cover, especially on Cedar/Pine and of peak flows, and lessen the need for additional stormwater neighborhood streets, was identified as a critical need to infrastructure. Street trees can also be planted within “tree box improve the 12th Street Core’s environmental sustainability filters,” which are in-ground tree containers designed to receive, and livability. The ecological, economic, and health benefits naturally filter, and infiltrate runoff from adjacent streets and/ 6 of street trees are well documented , and include: or walks. Some tree box filter systems include pre-treatment • Heightened aesthetics sumps to increase pollutant removal and simplify long-term • Improved quality of life maintenance. Tree box filters with side and bottom openings in

6 http://www.epa.gov/heatisland/mitigation/trees.htm 7 McPherson, E.G., J. R. Simpson, P. J. Peper, S. E. Maco, and Q. Xiao. 2005. Municipal forest benefits and costs in five US cities (PDF) (6 pp, 267K). Journal of Forestry 103(8):411–416.

30 conjunction with structural soils can help encourage infiltration management impervious area credits or volume reduction and accommodate unrestricted root growth. credits for additional trees planted adjacent to impervious Action Steps areas such as parking lots and driveways. • Require appropriately designed large canopy trees be • Prioritize street trees where they are needed most, both planted as part of new public infrastructure improvements within tree lawns buffering the sidewalk on both sides of such as roads and walkways as well as new private the road, and within a green landscaped median (as in the Cedar/Pine retrofit concept). This is one of the most development or redevelopment projects. valuable improvements that will make Cedar and Pine • Set a minimum tree canopy coverage requirement. This Streets and Little Rock, by extension, more attractive while could be a neighborhood goal over time, a site-by-site providing long-lasting economic benefit. requirement, or a combination of both. • Prepare site design guidelines that demonstrate • Conduct current tree canopy coverage and ambient air appropriate green infrastructure implementation temperature mapping to serve as a baseline for measurement calibrated to the unique character, density, and intensity of long-term tree canopy and heat island changes. of development in the form-based code. Specific • Continue stormwater management credits or other standards should be included for tree selection: species incentives for planting of additional trees beyond those and size at time of planting, planting standards, and required, potentially including developer donation of maintenance requirements. street trees for planting elsewhere within the neighborhood. • Prepare a site planning and design review checklist Fayetteville’s zoning code, for example, includes a as a required submittal for new development and tree escrow provision to allow developers flexibility redevelopment projects. The purpose of the checklist is to when additional trees cannot be accommodated on serve as a guide, clarifying municipal expectations and site. Little Rock has established the “Tree Restoration for ensuring that watershed health and green infrastructure Environmental Enhancement” (T.R.E.E.) fund for a similar are priorities. The checklist should include design purpose. Zoning codes across the country, including in principles to support compact development, preserve Austin, TX, Portland, OR, Seattle, WA, Indianapolis, IN, natural resources, minimize impervious area at the and Philadelphia, PA, include provisions for stormwater neighborhood scale, and manage rainfall as close to

Designing for Due to soil compaction and poor planning the average lifespan of an Urban Trees street urban tree is less than 10 years according to the USDA Forest Service. Streets should be designed to accommodate transpiration canopy interception tree root growth—the most critical factor in and evaporation implementing tree lined streets.

Healthy trees are essential components of green climate infrastructure and urban forestry. Shade trees planted regulation along hard surfaces reduce the heat island effect and habitat improve air quality. Besides functioning as carbon sinks, trees also reduce stormwater runoff through interception, evapotranspiration, throughfall, and flow attenuation. Trees help create a sense of place, reduce noise and glare, and provide a safety barrier for pedestrians from traffic, which is why neighborhood value is increased by their presence.

Trees vary in their growth requirements and rates based on the biological and physical conditions of the site. Trees should be chosen based on cold hardiness, mature size and shape, drought tolerance, rooting characteristics, and throughfall litter interception resistance to insect and disease problems. For a list of and evaporation suitable urban trees, consult a local nursery or landscape design professional (also see “Urban Trees for Zones runoff filtration 4-8” pp. 100-101). planter size: For continuous The planting area should accommodate the anticipated planters, allow six feet minimum root structure at maturity, ensuring absorption of water utilities: Locate underground width for minor streets and and nutrients. Remember that roots can extend well utilities away from root eight feet minimum width for systems. Trenching can major streets. For tree wells, beyond the canopy of the tree. Use structural soil for the minimum area should be 5’ adequate root penetration while minimizing damage to cause irreparable damage to roots. Employ tunneling x 10’. paved surfaces. Spacing between trees should reflect or trenchless technologies soils: Avoid soil compaction species’ crown size at maturity. With proper planning and to promote non-destructive during construction. Ideal soil care, urban street trees can live well beyond their average installation and inspection of for the planting area is sandy 10-year lifespan. utility infrastructure. loam while the periphery requires structural soil under underdrain impervious surfaces where infiltration the mature root system will be located. 98 no compaction zone

Low Impact Development: a Design Manual for Urban Areas, University of Arkansas Community Design Center

31 IMPLEMENTATION STRATEGIES

Table 5 - Green Infrastructure Performance Measures

Inclusion of advanced tree canopy requirements into a city-wide policy Inclusion of incentives for green infrastructure and additional tree planting into city-wide policy Adoption of site design guidelines and an application checklist that prioritizes context-sensitive Outputs green infrastructure Mapping of current tree canopy coverage and ambient air temperature completed Establishment of a neighborhood tree planting program completed Application for grants to fund neighborhood tree planting programs completed Percentage increase in tree canopy coverage Total number of new trees planted Outcomes Amount of suspended solids, nutrients, bacteria, or other materials filtered by new water quality BMPs during specific water quality storm events (estimate based on decrease in impervious surface in the plan area) Reduction in ambient air temperature (heat island)

where it falls as possible utilizing simple, natural, and area treated by new water quality BMPs sized to treat a specific cost-effective stormwater processes. storm event, such as the 1-inch storm. Funding Options Although more difficult to measure at the neighborhood scale, Communities across the country have been studying tree additional outcomes likely to be realized through the installation canopy coverage and setting ambitious tree planting goals. of street trees or other green infrastructure include improved air For example, Providence, Rhode Island’s Neighborhood Tree quality, reduced energy use, and reduced atmospheric CO2. Planting Program, a public-private partnership between the Parks Resources Department and a local endowment, set a goal to plant 20,000 Arkansas Urban Forestry Council trees by 2020 and is making steady progress to reach that goal. www.arkansastrees.org The program offers a street tree match cost program to residents and business owners, and plants free trees when neighborhood Fayetteville Urban Forestry Tree Planting Projects groups commit to helping plant and maintain five or more trees. www.accessfayetteville.org/government/parks_and_ recreation/urban_forestry/tree_planting_projects.cfm • Continue city-administered tree planting programs to bolster tree planting, incentivize private investment, and University of Arkansas Community Design Center uacdc.uark.edu provide more consistent replanting of trees over time. • Grants from the Arkansas Forestry Commission are often US EPA Low Impact Development available for street tree planting. LID Page: www.epa.gov/owow/NPS/lid Fact Sheet Series: water.epa.gov/polwaste/green/bbfs.cfm Incremental neighborhood-scale green infrastructure outcomes within the12th Street Core area can be tracked, measured, Public-Private Partnerships: and mapped on a project-by-project basis. Using the existing water.epa.gov/polwaste/green/upload/lid_canal_park_dc.pdf impervious area coverage for the study area (obtained through US EPA Greening America’s Capitals: Little Rock mapping) as a baseline, implementation of green infrastructure www.epa.gov/smartgrowth/pdf/GAC_LittleRock.pdf and the addition of flood control measures (or, in the opposite direction, addition of new unmitigated impervious area) can Alliance for Community Trees be applied to the baseline as an impact. For example, the actrees.org water quality impact of green infrastructure measures can be www.americanforests.org/our-programs/global-releaf-projects relatively simply calculated by measuring existing impervious

32 PUBLIC/PRIVATE RELATIONSHIPS repair or rehabilitation of their homes. If not already compliant, the home will have to be brought up to code. Improve Housing Opportunities + Conditions Homeowners assisted with HOME funds must have incomes at or below 80% of the area median income, A multi-pronged approach to neighborhood revitalization adjusted for family size. The home must be the owner’s will help the 12th Street Core increase housing diversity and principle residence and must be valued at or below provide more quality housing options for residents of all income 95% of median purchase price in the area. levels. The comprehensive options outlined below target each • Single-Family Rehabilitation/Emergency Repairs portion of the housing market to help support a safe and (CDBG) – The City of Little Rock has a program that diverse neighborhood. Ultimately, the diversity of housing stock grants/loans funds to eligible homeowners in the area needs to be improved, with the creation of apartments and for emergency repairs that threaten the safety and townhomes. This diversity will further support the existing and health of occupants. Typically, the grant funding is new retail as the neighborhood revitalizes. Working with the used for roof leaks, gas leaks, unsafe wiring systems, local developers and the City will form partnerships that could or water leaks. contribute to the immediate and long-term success of the area • Create a Loan Guarantee Program – The City as opportunities arise from the revitalization. could create a Loan Guarantee Program with a local There are a large number of rental residences in the single family bank to directly improve the rental properties in the neighborhood in the planning area. Nationally, because of the area and provide more housing options for existing risk involved, there are very few housing funding programs that and new residents. Both the Community Development pay for the rehabilitation of rental housing at the single family and Economic Development Departments of the level. Thus, the creation of the Loan Guarantee Program with a City should be involved with the program, as local bank could provide this funding opportunity for the single- the Economic Development department has the family rental market at a reduced loan rate, which is more likely advantage of understanding loan programs and risk to be accessible to residents. and the Community Development department has the advantage of understanding the neighborhood Action Steps and its inhabitants. The loan guarantee would be an • Educate homeowners in the 12th Street Core area on the agreement between the City and a local bank to following programs in the City. This could be done through provide lower rate loans to property owners in the initial outreach hosted at the Willie Hinton Center, followed area for the rehabilitation of their property. The loan by informational and/or technical assistance sessions, to would be backed by the City of Little Rock, so the risk help homeowners identify the options available to them. is lower for the bank, which could in turn offer a lower • Homeowner Rehabilitation (HOME funding) interest rate. The City of Little Rock would agree to be – the City of Little Rock has a program that grants/ the guarantor and assume the debt obligation of a loans funds to eligible homeowners in the area for the borrower (beneficiary living in area) if that borrower

Table 6 -Housing Opportunities + Conditions Performance Measures

Number of homeowners receiving information on options for financing repairs. Information/technical assistance sessions for homeowners seeking repair assistance held. Outputs Establishment of a loan guarantee program. Establishment of incentives for small lot development. Amount of funding distributed through the loan guarantee program. Number of existing housing units rehabilitated and enhanced. Outcomes Number of new housing units (rental and homeowner occupied) constructed in the study area. Number of non-single family housing units constructed in the study area (measure of housing diversity)

33 defaults. The City would need to do its due diligence emergency grant to hire an architect who specializes in historic in ensuring the beneficiaries are qualified for the preservation and a structural engineer familiar with old buildings program. Typically, a loan program should provide who can assess the structural integrity and rehabilitation potential loans no greater than $25,000 for minor repairs. of the Lee Theatre. As of Fall 2014, the building was found to be Cosmetic enhancements to existing housing could be structurally sound and have rehabilitation potential. another eligible use of the repair loans. Step 2: Historic Context Study • Provide incentives for small lot developers to purchase vacant lots to develop – This would support Every preservation planning effort should begin with research the design concepts outlined in this plan and ensure context- to identify the themes, time periods, and geographic areas appropriate development. Additional single family and that relate to the historic development of a community and townhomes in the 12th Street Core area could support the to broader historical trends in the state, region, or nation. retail spaces in the study and the economic revitalization of Understanding how a local area fits into the “bigger picture” the area. Incentives could be both financial or procedural. gives a foundation for identifying and evaluating properties The City of Little Rock may be able to direct federal funding that represent those trends—that help tell the community’s story. or other support to the study area to support projects. A qualified historian should be hired to conduct the research, Partnerships working with the State Historic Preservation Office (SHPO) to develop goals and parameters for a context study of the 12th • City of Little Rock Street Core area. Of particular interest would be the area’s • Metroplan (Create the education outreach and education development as a blue collar community, the various housing itself for the homeownership programs and/or help usher types found there, and the role of the Lee Theatre and small the Loan Guarantee Program) commercial buildings in sustaining the neighborhood. The • Local Bank(s) context study primarily would be used to assist in the next Funding Options step, an architectural resources survey of the area’s structures. But historical information collected could be used in a public • HOME; CDBG; Loan Guarantee Program with Banks presentation to the community in hopes of augmenting appreciation and support for preservation. Historic Preservation + Activation of the Lee Theater Step 3: Architectural Resources Survey of Potential Historic Properties Preserving the historic character of the 12th Street Core area Before conducting a survey of the area, meet on site with will be a challenge in large part because of: SHPO staff to identify which properties retain enough historical • Loss of original buildings via demolitions throughout the integrity and represent the findings of the context study to be neighborhood, leaving few intact blocks; documented and photographed, using the SHPO’s standard • Historic preservation planning has not been a priority in Arkansas Architectural Resources Survey Form. the past; • Focus is on more pressing issues such as crime, poverty, Step 4: Determination of Eligibility lack of public services; Using the results of the survey, SHPO staff will determine • Deferred maintenance and vacant, boarded buildings; whether the properties meet the criteria for listing in the National • Little Rock Historic District Commission is not actively Register of Historic Places, that is to say, whether they are designating local landmarks or districts; eligible—either individually or as part of a district—for listing However, there are important steps that can be taken during in the Register. Determination of eligibility is only a first step in the Jump Start Implementation process to improve knowledge considering a property for listing, but it must still go through a of and appreciation for the community’s history and the built rigorous nomination process if it is to become officially listed. environment that bears witness to it. When a property has been reviewed and determined eligible for listing, its record at the SHPO indicates that it is eligible. This is Step 1: Condition Assessment for the Lee Theatre important protection for eligible properties that may be harmed Historic groups and the City have already obtained an by projects that are federally funded, permitted, or licensed.

34 Federal projects must be submitted to the SHPO for review, be sustainable by charging low prices for previously released under Section 106 of the National Historic Preservation Act of films, renting the venue for small events or meetings, and 1966, to be sure that federal agencies take into account effects concession sales. their projects may have on historic properties. For purposes of One possible reuse could be as a center for American black the Section 106 review process, “historic properties” are those cinema, featuring works by black filmmakers and actors or listed in the National Register, as well as those determined examining issues relevant to the black community. A non-profit eligible for listing. Any adverse affects must be resolved, often organization could be formed to manage the theater space, through a Memorandum of Agreement. with an advisory committee from the community that selects films, highlighting certain themes or noteworthy people in the Step 5: Stabilize the Lee Theatre history of black cinema. For example, Arkansans Louis Jordan All work on the theater—including hazard abatement—should and William Caesar Warfield have an impressive musical and be planned in consultation with the SHPO to be sure the theater cinematic body of work to draw from. (For more information, retains original design, materials, workmanship—that the work see the exhibit “Lights! Camera! Arkansas!” at the Old State meets the Secretary of the Interior’s Standards for Treatment of House Museum in Little Rock.) Such a center would provide affordable entertainment, inspiration and identity to the local Historic Properties—so as not to jeopardize the property’s ability community...all with walking distance from nearby homes to be listed in the state register and in the National Register of or from transit stops on 12th Street West. Throughout this Historic Places in the future. Listing in the National Register offers neighborhood, there is a high concentration of social services opportunities for historic tax credits and grant funding that would and, now, a police substation, all reminding residents that their not be available otherwise. Goal of this step is to secure the neighborhood is struggling and sub-par. Having a positive, building from water intrusion, vandals, and further deterioration inspirational focus that celebrates the accomplishments and and to make it safe for site visits. Work items: talent within the black community—possibly providing role • Connect electrical service models to young movie-goers—would bring much-needed • Install a permanent or temporary roof positive energy to this area. Moreover, an interpretive display • Eradicate pigeons, treat for termites and other pests in the lobby area discussing the history of racial segregation in • Abate asbestos or other possible health hazards places like the Lee Theatre could help inform visitors about the • Secure doors and window openings complex and evolving role of race in society. The theater might • Install a dehumidifier or other means of circulating air draw visitors from the nearby Little Rock Central High School • Remove detritus from auditorium floor National Historic Site who are interested in civil rights history. While awaiting funding for a full rehabilitation/restoration Rehabilitation of the Lee Theatre could serve as a catalyst to of the theater, research should be conducted to locate draw attention and revitalization to the community. Consultants architectural drawings, specifications, information about for the Jump Start project have been in contact with the owner materials suppliers, and archival documentation of theater- of the adjacent 1917 commercial building, the Lambert related business activities that occurred in that location to help Building, who already expresses strong interest in rehabilitating inform the full project plans. his property if the theater is brought back to life.

Step 6: Reuse Plan for the Lee Theatre Step 7: Phased Rehabilitation Since the condition assessment of the Lee Theater showed that The rehabilitation project could occur in manageable phases, rehabilitation is viable, a reuse plan should be formulated. as funding becomes available. After the building is stabilized, Case studies of similar theater rehabilitation projects should the next step could be to restore the facade of the building by be gathered to help inform the plan. Potential funding sources removing black paint to reveal the original maroon and cream should be identified. tiles underneath, for example. Ideally, future use would be as in the past: as a movie theater, Then, reconstruction of the marquee, with local dignitaries with a reconstructed small stage for simple, live events, such attending a lighting celebration, would add excitement and as a lecture, public meeting, comedy routine, or acoustic momentum to the project. At the same time, the fledgling musical performance. Economic viability of a first-run movie American Black Cinema non-profit could show outdoor movies house at this location is unlikely. However, the theater may nearby in the parking lot across from the theater or projected

35 IMPLEMENTATION STRATEGIES

onto the east theater wall, for example. Perhaps officers from more attractive and safer for shoppers and visitors. the nearby police station could assist in running the projector A specific initiative that is well suited to the 12th Street or popping popcorn, for example, in order to foster positive neighborhood that the Merchants’ Association could lead is a interactions with the community and provide a non-threatening, façade improvement program, which can: but important, presence. • Revitalizing existing communities – By preserving and As rehabilitation progresses and the building is habitable, improving existing buildings, the city can help to enhance perhaps folding chairs are used in the theater until theater 12th Street Core’s current properties and attract additional seats can be ordered. The point is to progress slowly, as funds business and investment. are available, in order to keep the project moving but not overwhelm those managing the process. • Supporting safe, accessible quality places – Enhancements to buildings in disrepair can make residents and visitors feel more safe and comfortable in a Establish Merchants’ Association + Create a BID commercial area. • Enhance economic competitiveness – Investment in The 12th Street Core has a relatively low commercial vacancy buildings can spur private investment in the corridor, rate and a number of successful businesses. These as well helping to bring about more growth to support revitalization as future businesses could benefit greatly from improved more broadly. coordination with each other to advance the interests of the business community and turn 12th Street Core into a Some examples of façade enhancements include: neighborhood center and pedestrian-friendly destination. • Evanston, Illinois9 – This program is administered by The 12th Street Merchants’ Association can support street the city’s economic development division and includes improvements and other economic development initiatives to visual enhancements such as new exterior lighting, new not only strengthen their own businesses, but to attract and windows, and restoration of historic details. develop additional businesses that will turn the neighborhood • Atlanta, GA10 – Led by a public-private partnership, into a hub of local economic and civic activity. façade improvements are intended to increase quality of life Similar in many ways to a business improvement district (BID), a enhancements in downtown, including the appearance of merchants’ association is a voluntary coalition of organizations commercial areas, safer and cleaner neighborhoods, and that support the growth of a neighborhood. The difference additional ridership for the commercial corridor’s street car. between a BID and a merchants’ association is that property • Pittsburgh, PA11 – Through a partnership with business owners and tenants in an established BID are required to pay districts, the city’s urban redevelopment authority has been an assessment fee, whereas merchant associations usually able to provide funds to commercial building owners to depend on voluntary contributions.8 improve their facades. All projects must be located within a By launching and formalizing the 12th Street Merchants’ pedestrian-oriented shopping area to ensure the greatest Association, the 12th Street Core can: impact on businesses. 12 • Create and access a new funding source for shared • Syracuse, NY – The Connective Corridor program is maintenance such as street cleaning, infrastructure funded by Empire State Development and provides funding improvements such as improved street lighting or signage, for a number of enhancements that support livability, special events, or other services needed. safety and connectivity, including façade improvements. • Enhance its ability to leverage a cohesive and coordinated Action Steps response to policy or government issues (such as requesting The 12th Street Core business owners can: new zoning to improve business mix improvement). • Formalize the fledgling 12th Street Merchants’ Association • Reduce commercial vacancies in order to make the area through the formation of a board, a membership and dues

8 http://www.nyc.gov/html/sbs/downloads/pdf/bid_guide_complete.pdf 9 http://www.ura.org/business_owners/facadeProjects/BeforeAfterPhotos.pdf 10 http://www.investatlanta.com/opportunities/downtown-facade-improvement-grant-program/ 11 http://www.ura.org/business_owners/streetfaceProgramGuidelines.pdf 12 http://connectivecorridor.syr.edu/resources/

36 structure, bylaws, and regular meetings. The 12th Street • Support bicycle/pedestrian investments. Through member Merchants’ Association can bring together a coalition of contributions, a merchant association in the 12th Street Core businesses invested in the community, as well as a funding can support needed connectivity improvements for 12th stream for low-cost improvements such as crosswalks, Street. By connecting the commercial corridor through the façade improvements, and street landscaping. neighborhood, 12th Street can attract additional business and visitors. • The 12th Street Merchants’ Association can develop an ambassador program to attract new small businesses. • Support events to bring residents and additional business An ambassador program can offer strategic support to activity to the area and celebrate the neighborhood’s new small businesses, including through marketing and diversity and historical significance. promotion recommendations, to help get new businesses Funding off the ground. As an incentive to attract new businesses • The 12th Street Merchants’ Association can generate to the area, the Merchants’ Association could partner funding through voluntary contributions; in the future, the with organizations (e.g. a local economic development Association could consider conversion to a BID, which authority) to offer technical assistance support. would provide a more secure stream of funding for local • Establish a façade improvement program, which would initiatives approved by members. offer property owners (either directly or in collaboration • Some federal funds are available for enhancements with tenants) an opportunity to enhance a building’s like façade improvements, including the Community exterior, making the property, and more broadly the Development Block Grant Program (CDBG). The Merchants’ street, more inviting, accessible and safe. Examples of Association could be a partner in the development of the improvements include landscaping, awnings, exterior Loan Guarantee Program and identify priority areas for lighting and other improvements that can make an area repairs (of both homes and businesses) that are likely to more inviting to pedestrian traffic. have the most positive impact on the neighborhood. • Advocate for the adoption of the form-based overlay • Cities and states also have development funds and other described in this plan, which will help enhance commercial funding sources for projects like façade improvements. diversity and address vacancies and underutilized parcels. In some cases, the funding is contingent upon business

Table 7 - Merchants’ Association Performance Measures

Adoption of the mandatory form-based code. Establishment of a 12th Street Merchants’ Association with operating procedures + bylaws. Formation of a Merchants’ Association board. Establishment of Merchants’ Association’s voluntary dues structure and mechanism for collecting Outputs dues. Establishment of a business ambassador program. Establishment of a facade improvement program. Number of civic or cultural events held in the12th Street Core to bring residents and business activity to the area (and estimated attendance for each) per calendar year. Number of individuals receiving support through business ambassador program. Number of facade improvement projects completed. Outcomes Amount of funding (by source) invested in improvements to the 12th Street Core area. Number of new businesses established in the 12th Street Core. Number of bike, pedestrian and other improvement projects completed in the 12th Street Core area.

37 IMPLEMENTATION STRATEGIES

Before and After Examples of Facade Improvement Projects in Pittsburgh. Source: Urban Redevelopment Authority of Pittsburgh, http://www.ura.org/business_owners/facadeProjects/ BeforeAfterPhotos.pdf

owners and tenants following through with approved a Business Improvement District – a step by step guide http:// plans. Additionally, some programs limit funding to specific www.nyc.gov/html/sbs/downloads/pdf/bid_guide_ areas of a city, such as TIF districts or downtown corridors. complete.pdf. Partnerships Program Examples The 12th Street Core can work with the City of Little Rock, the • Syracuse, NY Connective Corridor – http:// chamber of commerce, other businesses, property owners, connectivecorridor.syr.edu/resources/ and neighborhood associations in nearby areas, and county, • Urban Redevelopment Authority of Pittsburgh, Program regional and state economic development organizations, such Design Guidelines for Façade Restoration – http://www. as the Metro Little Rock Alliance and the Arkansas Economic ura.org/business_owners/dfrp-designGuidelines.pdf Development Commission. • Invest Atlanta, GA – http://www.investatlanta.com/ Resources opportunities/downtown-facade-improvement-grant- New York City Department of Small Business Services, starting program/

38 MARKET ACTIVITY policy shall be independent. • Tailor recruitment efforts based upon the context of available space, vision for development, physical needs Tenant Sourcing and Activation for each prospect, and available drivers which support the prospects business strategy. Tenant recruitment is one of the strongest returns on investment • Maintain a pipeline of prospects and update each in implementing strong planning. Recruitment is often done opportunity with tasks that can facilitate progress in the through the owner, or the property owner’s representative/ prospects underwriting and acceptance of the area. broker. However, the public sector can take an active role in • Evaluate prospects and terminate “no go” opportunities as recruiting office, retail and other services that can create fiscal needed to focus resources on probable opportunities. impact and activate catalyst sites. • Attend trade shows and market to prospects. Recruitment can be passive or direct. Historically, economic development agencies are passive agencies and are engaged Invest in Human Capital by Strengthening Local once a prospect is identified. Passive activities include creating marketing information, connecting prospects with potential Businesses + Investing in Worker Training projects, administering policies, and coordinating market activities with third parties. Direct recruitment is usually done The need for living wage jobs in the 12th Street area is through an internal marketing coordinator. The marketing significant. The flight of capital and jobs that began decades coordinator may work direct through the city, or could be within ago has had lasting impacts on the community. Unemployment a non-profit such as a chamber of commerce, business group, among residents is high, median incomes are low, and a or economic development agency. Direct recruitment activities significant number of properties are vacant or abandoned. would include researching and strategically marketing to direct Many residents have expressed a desire to see additional prospects, promoting development tools and opportunities to investments in the neighborhood’s residents, in addition to prospective developers, actively supporting brokers in procuring physical infrastructure and amenities. Bringing in national tenant prospects, and working with third party implementation retailers and other chain businesses can provide jobs, but specialist and creating proactive merchandising strategies. rarely do they provide health care benefits or offer significant growth opportunities for workers with limited formal education. When recruiting for redevelopment and in-fill locations, there may be a need to focus on high quality destination prospects The Evergreen Cooperatives model from Cleveland has received that may be more regional in nature. As the area matures, national attention due to its innovative structure and potential as the recruitment team should focus on super-regional or a poverty-reducing tool in disadvantaged neighborhoods. The national prospects. In some areas, it may be advantageous Evergreen Cooperatives are employee-owned businesses that to maintain a higher percentage of niche and boutique tenant invest in residents; each cooperative recruits, trains, and employs mix with regional and local credits to create a more authentic members of historically disadvantaged groups and neighborhoods, environment and differentiated tenant base. This is certainly and all employees and employee-owners are paid more than effective in neighborhood oriented centers and downtowns. minimum wage and receive health benefits and access to a In developing the merchandising plan, the growing industry program through which they can buy foreclosed housing units at a sectors may be strong categories to consider. For retail, the low cost. After employees have paid a total of $3,000 (through categories with the greatest amount of retail leakage should earnings and paycheck deductions), they become owners and set prioritization. receive shares of all profits. The three Evergreen Cooperatives Recommendations (described below) provide an opportunity for local anchor institutions and other businesses to spend their resources locally to • Identify an internal champion that will be responsible for invest in and strengthen communities. active recruitment. • Develop a targeted merchandising plan and specialized • Evergreen Cooperative Laundry (ECL) serves local marketing plan that identifies specific marketing channels, hospitals, nursing homes, hotels, and restaurants using a tasks, resources, and measurables for each industry. LEED-certified facility and earth-friendly cleaning products. • Develop a set of policies and incentives for recruitment of • Evergreen Energy Solutions (E2S) employs residents of primary employers and other industries such as retail. Each specific neighborhoods to help local institutions to become

39 “green.” using solar power and weatherizing techniques Partnership Opportunities to improve energy efficiency. More recently, E2S has Organizations that with an interest in supporting initiatives that expanded to provide additional contracted services from employ residents of the 12th Street area may include: painting houses to cleaning out vacant buildings.13 • Better Community Development, Inc., which runs the • Green City Growers (GCG) opened in 2013 with 25 EmPowerment Center and Nia Center employees. GCG runs a 3.25-acre, 15,000-square foot hydroponic greenhouse in central Cleveland that produces • The Arkansas Economic Development Commission Bibb, green leaf, and other gourmet lettuces and basil. • The Delta Regional Authority and States’ Economic GCG sells its products to supermarkets and restaurants in Development Assistance Program Northeast Ohio. • Arkansas Department of Workforce Services/Arkansas Lessons Learned Workforce Center The Evergreen Cooperatives provide valuable best practices • Little Rock Workforce Investment Board that can inform similar initiatives in the future. Although they • Pulaski Tech Weatherization Training Center for Applied are now verging on profitability and employ approximately 90 Building Sciences people , the cooperatives initially struggled to compete with competitors. Their early start-up costs were supported through • City of Little Rock low-interest loans and grants (by some accounts totaling as • Arkansas Department of Human Services much as $25 million14), which are unlikely to be obtainable in • Arkansas Department of Labor other areas or under different conditions. • UAMS and other large business and anchor institutions. ECL struggled at first to gain traction in the market of local hospitals. The ECL grew its business by subcontracting with Approaches to Support 12th Street Businesses larger laundry service suppliers, and after 5 years of operation Below are several approaches to foster the development earned the reputation to land a 2.5-million-pound-per year, and success of 12th Street businesses. All of the proposed 5-year contract with Cleveland’s University Hospitals. E2S, by approaches are funding-neutral and, thus, do not require either comparison, had more early success. Anchor institutions and state or private aid. Instead, they may leverage partnerships local housing developers channeled a steady amount of work with existing organizations or policies that impact market into the co-op to install solar panels and weatherize homes. dynamics. These approaches are targeted towards both human In addition, the company’s managers have sought additional capital development for business owners and employees as work opportunities such as painting, cleaning out abandoned homes, and installing siding, to ensure profitability.15 Because well as policies that can be leveraged to drive demand at these GCG is relatively new, relatively little information about lessons local establishments. learned from this business is available at this time. • Identify existing apprenticeship and training programs One of the reasons that the Evergreen Cooperatives have struggled that prepare workers for employment or local business to reach profitability has been their relatively high emphasis on ownership in fields such as plumbing, home repair, heating/ capital investments in industries that have relatively low profit cooling, electric services, weatherization services, or solar margins. The fact that E2S has nimbly and successfully expanded panel installation (or others). Initiate discussions with these into providing other, less capital-intensive services indicates that programs to create or enhance opportunities for residents similar initiatives can work under the right circumstances. The of the 12th Street area to enroll. For example, successful 12th Street area should target industries that require less formal completion of the Nia Center’s “Jobs for Life” training could education and require relatively low start-up capital investments be a prerequisite for enrollment of individuals lacking more to ensure early profitability. There are a number of institutions in the formal qualifications. Central Arkansas region that could be effective partners in these • Identify local workers with skills in weatherization, types of initiatives, they are discussed below. plumbing or other technical, service-oriented fields with

13 http://www.takepart.com/feature/2014/05/30/co-op-businesses-in-the-us-evergreen-cooperatives 14 http://www.takepart.com/feature/2014/05/30/co-op-businesses-in-the-us-evergreen-cooperatives 15 http://www.takepart.com/feature/2014/05/30/co-op-businesses-in-the-us-evergreen-cooperatives

40 an interest in starting their own businesses. Partner with local colleges or small business training programs to help them establish their businesses with a requirement of hiring local workers as their businesses grow. • Initiate discussions with the Pulaski Tech Weatherization Training Center for Applied Building Sciences. The Center is one of 13 in the US that receives funding from the US Department of Energy and provides weatherization training for states contiguous to Arkansas in partnership with the Arkansas Department of Human Services. Work with the training center to encourage enrollment of disadvantaged workers in the program; specifically, for example, individuals who have completed the “Jobs for Life” training. • Initiate discussions with larger businesses and anchor institutions in the region regarding the services they regularly contract out to local businesses and any standards they have for contracting with small and disadvantaged businesses. With the establishment of Act 1222 of 2009, the Minority Business Economic Development Act, there is an annual procurement goal of at least ten percent (10%) of state-funded contracts going to minority-owned businesses. Work with the City of Little Rock to identify city procurements that could be satisfied by DBEs. Resources Evergreen Cooperatives, http://evergreencooperatives. com/. Friess, Steve. “Can The Co-op Save Us?” http://www. takepart.com/feature/2014/05/30/co-op-businesses-in- the-us-evergreen-cooperatives.

Table 8 - Human Capital Investment Performance Measure

Partners recruited to support job training and/or business establishment programs. Dollar value invested in job training and/or business establishment programs. Outputs Number of DBE requirements or preference policies established for local businesses. Number of DBE requirements or preference policies established for city procurement. Number of City residents obtaining employment through job creation and/or training initiatives. Outcomes Number of new minority-owned businesses established. Dollar value of DBE business investments in 12th Street Core area.

41 ACTION STEPS

Near Term Action Steps □□ Adopt this Implementation and Action Plan for supporters to not show up for public hearings. • In order to be eligible for any regional funding for Documented support is better than hearsay. infrastructure improvements, the Implementation • Some special work sessions with Planning Commission and Action Plan must be adopted by the Board of and the Board of Directors may be necessary and Directors as the guiding plan for any projects in the minutes from those events should be documented. 12th Street Core. • Prior to any final adoption, any major edits to the • In order to be eligible for the next round of funding Design Overlay must be reviewed and approved by allocation by Metroplan for implementation of Metroplan. This ensures that the document has not infrastructure projects, this plan must be adopted in lost key elements that would support a sustainable the first quarter 2015. development pattern, mix of uses, or the context □□ Adopt the draft of the Cedar/Pine Design Overlay sensitive approach to roadway elements, among regulations other elements. • In order to be eligible for any regional funding for • Failure to get approval from Metroplan on edits to the infrastructure improvements, these updates must be Design Overlay may make the project ineligible for adopted by the Board of Directors as the zoning regional funding for infrastructure, as key elements may unintentionally be removed from the Design Overlay. document for any projects in the 12th Street Core. • Once the document has been reviewed and • In order to be eligible for the next round of funding supported, proceed through the adoption process at allocation by Metroplan for implementation of a regular Board of Directors’ meeting. infrastructure projects, these updates must be adopted • Once adopted, educate all departments on the in the first quarter 2015. goals, objectives, and expected outcomes from the • Apply these proposed updates to the zoning development code. A special focus on permitting, ordinance as a City initiated zoning amendment and inspection and code enforcement will need to be notify the appropriate landowners within the required made for these education sessions. distance or proximity, if necessary for amendments. • This may be processed as both a Map amendment □□ Assemble representatives from all stakeholder and a Text amendment in the City Zoning Ordinance. groups to form a Coalition for Implementation The update does require a rezoning as the base zones • Include but do not limit to regional and state agencies, would be altered to create a uniform use table for the chamber of commerce, non-profits, project area character areas. leaders, staff department, city director and school • It is encouraged that the Cedar/Pine Design Overlay district representatives. zoning be adopted by reference and remains as a • This group should not have any decision making standalone document, so that the sections do not get ability, but will instead help organize and educate scattered throughout the current zoning ordinance. their respective groups on the status and process for • In addition, the City Zoning Map should reference the implementation of this plan. Cedar/Pine Design Overlay as one district (one zone • Regular monthly meetings should be set to ensure labeled CPDO), which allows the Regulating Plan consistent news is being delivered to these groups. to regulate the breakdown in character areas and • A single person should be the lead for this group, allows the required flexibility to be processed without perhaps a city employee or ombudsman, and will the need for rezoning or variances. have charge of keeping the plan, setting meetings, • Allow for appropriate public input, but be sure that all keeping minutes and following up on implementation participants in the session are educated to the basis activities and performance measures. and purpose of the development code. □□ Create a Merchants’ Association and build up • Be sure that letters of support are requested and membership submitted for hearing submittals, as it is common • Focusing on building up the membership will round

42 out participation from businesses but also get news • Options for local vender opportunities may be out for events and news in the area. institutions such as UAMS, City departments, or other • Once a strong enough membership is available, higher education. consider creating a Business Improvement District. • Research these larger institutional needs to examine This will ensure consistent funding for maintenance, where a market may be found. programming and can even support security needs. • Begin small by building up a small group of employees □□ Begin the process for street improvements focusing with a practitioner in the local community. first on Cedar and Pine • Train and build up the work force to fulfill local • Meet with Coalition and Metroplan to understand smaller contracts with a goal to compete for larger the requirements of the Metroplan funding source, vendor contracts. application process and eligibility for projects • Establish a means for ownership and continued • Apply for funding from Metroplan funding sources if education for the employees. Build incentives into these roadways meet eligibility requirements the workforce to encourage continued growth and • Create a plan to work with Metroplan on the design responsibility. process that serves as a win-win for both groups • Continue this process with other needs in the area and • Focus the request for proposal on the qualitative aspects continue to support connections to build the base of (connectivity, walkability, economic development, education and employment for these industries. context sensitive design, green infrastructure, etc.) and □□ Preserve historic neighborhood character by the quantitative aspects (total cost, driveways, access rehabilitating the Lee Theater management, etc.). Each of the aspects is important, • Determine the cost for rehabilitation. but the long-term strategy for Cedar and Pine must be • Perform a historic context study. focused on economic development and qualitative • Perform an Architectural Resources Survey of other aspects primarily. potential historic properties. • Select a qualified general contractor team and • Determine eligibility of the theater and its context. engineering team to streamline the design and • Stabilize the theater. building process. Key qualifications should include: • Focus on creating a reuse plan for the theater. • Experience with green infrastructure • Use the reuse plan to build up fundraising efforts and • Experience with AHTD roadway design (ties into gather support. AHTD facility) • Perform a phased rehabilitation and keep constant • Experience with walkable urban thoroughfares records of milestones and present those milestones in and context sensitive design a big way to gather additional fundraising for each • Experience on projects requiring the reporting and phase of the effort. process for federal and regional funding □□ Design and Implement other neighborhood and • Experience with mixed-use roadways and multi- mixed use street improvements use trail integration • Focus the request for proposal on the qualitative aspects • Begin and complete the design and construction (connectivity, walkability, economic development, process context sensitive design, green infrastructure, etc.) and the quantitative aspects (total cost, driveways, access Long Term Action Steps management, etc.). Each of the aspects is important, □□ Invest in human capital by strengthening local but the long-term strategy for Cedar and Pine must be businesses and investing in worker training focused on economic development and qualitative • Source partners in the creating of “Evergreen aspects primarily. Cooperatives” this could be local practitioners, • Select a qualified general contractor team and education institutions, business leaders, city staff, engineering team to streamline the design and economic development groups or programs, and building process. Key qualifications should include: local non-profits. • Experience with green infrastructure • Set a game plan and find a need in the community. • Experience with walkable urban thoroughfares The right beginning is looking toward local services. and context sensitive design

43 IMPLEMENTATION STRATEGIES

• Experience on projects requiring the reporting and process for federal and regional funding • Experience with mixed-use roadways and multi- use trail integration • Begin and complete the design and construction process □□ Consider a Public Improvement District for maintenance of landscapes and streetscapes within the whole 12th Street Core area. • Build up the momentum for a Public Improvement District by first assembling a Business Improvement District and showing the value of such an investment tool. • This can be used to fix up needed infrastructure in the public areas. It can also eventually expand along the rest of the corridor. □□ Finish and adopt the Complete Streets Ordinance and expand to address context sensitive solutions. □□ Create a city-wide Green Infrastructure Program □□ Work with the Coalition and Merchants’ Association to create a branding and marketing plan for 12th Street Core. □□ Work with the Coalition and Merchants’ Association to connect 12th Street Core to the wayfinding and lighting palette of the Greater Downtown Area. This should be associated with the branding and marketing plan. □□ Re-evaluate long-term strategies on an annual or bi- annual basis. Adjust some long-term to short term and add new focus areas for long-term improvements for 12th Street Core. □□ Incorporate on an annual basis, any short-term projects that require CIP funding or commitments, into the CIP project list. □□ Collect and deliver Performance Measure data to Metroplan.

44 CONSOLIDATED PERFORMANCE EVALUATION FRAMEWORK

The purpose of this section is to present an evaluation framework can be used to track and evaluate implementation of this plan, as well as how changes in the 12th Street Core are furthering regional and national livability goals. First, this section provides some background information about the Federal and regional principles, goals, and performance measures that underlie the Federally-supported Jump Start program and (in the case of performance measures) are currently being used to track progress toward creating more livable and sustainable communities. Then, the section identifies the performance measures that will be used to track progress toward implementation of this plan and the connections to Federal and regional indicators where they exist. Finally, a performance baseline for Little Rock, against which future progress can and should be tracked, is provided in a digital format for ease of tracking over time. Although full implementation of the plan in the 12th Street Core is not expected to significantly alter performance on regional livability and sustainability indicators in the short or even medium term, it will support accomplishment of long term regional objectives, particularly as the policies and strategies implemented in the 12th Street Core become more widespread throughout the region.

Federal • Livability Principles. The Federal Partnership for Sustainable Communities (including HUD) developed the Livability Principles to define what makes a community livable and to guide the agencies’ investments in furthering livability. These principles guide the entire Imagine Central Arkansas grant. • Flagship Sustainability Indicators (FSIs). Subsequently, HUD developed a set of eight Flagship Sustainability Indicators (FSIs) that can be used by jurisdictions throughout the country to measure progress toward creating more livable and sustainable communities.

Regional • Imagine Central Arkansas Goals and Jump Start Program Elements

45 Table 9 - Evaluation Framework

Federal Livability ICAP Program Jump Start Metroplan Goals Project Goals Principles Elements Evaluation Areas Provide more 2. Quality corridors and transportation choice Efficient mobility Provide transportation Redesign the intersections of Cedar and Pine transportation choices 1.2, 5.3 - Multimodal transportation system options choices and enhance Streets at 8th and 14th to create a gateway to the 1.3 - Modal choice mobility 12th Street Core area for both public and private 2.5 - Public transit system Pedestrian design uses, potentially extending the streetscape into the 2.6 - Pedestrian facilities adjacent neighborhoods. 2.7 - Bikeway facilities 4.3 - Design for all modes 4.7 - Reduce H+T costs 5.2 - Active transportation 5.4 - Safety, efficiency and convenience of active transportation Promote equitable, 4. Land development and housing Housing choice Increase housing and Propose a new vision and implementation plan for affordable housing 4.6 - Housing choice and availability development/land use properties within the 12th Street Core. Development diversity diversity Enhance economic 1. Economic growth and vitality Educational Increase housing and Use the Jump Start project to build consensus on an competitiveness 1.4 - Economic development opportunity development/land use implementation strategy. diversity Economic Propose a new vision and implementation plan for development Enhance economic properties within the 12th Street Core. competitiveness Support existing 6. Funding adequacy Efficient growth Support existing Use the Jump Start project to build consensus on an communities 2.8 - Mixed use/compact clusters communities implementation strategy. 4.5 - Neighborhood infrastructure Activity centers 6.3 - System efficiency and preservation

46 Federal Livability ICAP Program Jump Start Metroplan Goals Project Goals Principles Elements Evaluation Areas Value communities 5. Healthy and safe communities Quality places Support existing Use the Jump Start project to build consensus on an and neighborhoods communities implementation strategy. Healthy communities Create quality Propose a new vision and implementation plan for places and healthy properties within the 12th Street Core. communities Coordinate and Illustrated through this implementation plan. leverage Federal policies and investment Environment 3. Environmental quality and sustainable energy Environmental Support Redesign the intersections of Cedar and Pine embedded in stewardship environmentally- Streets at 8th and 14th to create a gateway to the principles 1,2,4 and sustainable 12th Street Core area for both public and private 6 Resource efficiency development uses, potentially extending the streetscape into the adjacent neighborhoods.

47 THIS PAGE INTENTIONALLY LEFT BLANK 12TH STREET CORE LITTLE ROCK, AR

APPENDIX

JUMP START INITIATIVE Planning for Prepared for ICAP, Metroplan and The City of Little Rock Sustainable Growth December 2014 ACKNOWLEDGMENTS

CONTRIBUTORS IMAGINE CENTRAL ARKANSAS PARTNERS

METROPLAN Jim McKenzie, Executive Director Richard Magee, Deputy Director/Director of Planning Metroplan Staff

Existing Conditions Public Engagement Market Analysis Maps THIS PAGE INTENTIONALLY LEFT BLANK EXISTING CONDITIONS THIS PAGE INTENTIONALLY LEFT BLANK TABLE OF CONTENTS

I. Introduction ...... 5 (a) Matrix of Evaluation...... 7

II. Existing Conditions + Context...... 9 (a) Regional Context...... 9 (b) Housing Choices + Land Use Diversity...... 11 (c) Housing + Transportation Cost...... 11 (d) Environmentally Responsible Development...... 15 (e) Water...... 19 (f) Franchise Utilities...... 20 (g) Transportation Choices + Mobility...... 21 III. Quality Places + Healthy Communities...... 27 (a) Health Resources/Rankings...... 27 (b) Outdoor Activites...... 29 (c) Historic Places and Landmarks...... 29 IV. Strengths, Weakness, Opportunities + Threats...... 35

3 THIS PAGE INTENTIONALLY LEFT BLANK INTRODUCTION

Purpose of the Initiative • Air, land and water quality concerns; • Market status and viability; In 2012, Metroplan received a $1.4 million grant from the • Social, civic and public activities and facilities; U.S. Department of Housing and Urban Development (HUD) to develop a comprehensive regional plan for sustainable • Historic or symbolic buildings or structures. development. Funds have and will be used to fully develop the Each of these topics have been arranged to match the key long-range transportation plan to better consider affordable evaluation criteria set by Imagine Central Arkansas Partners housing, economic development, health, environmental and (ICAP) to determine the most appropriate projects to receive energy concerns. this Jump Start planning support. Each of these evaluation Setting the stage for the regional plan implementation is a key criteria have been assembled from the series of HUD Livability feature of the HUD Sustainable Communities Grant work plan, Principles and the Metroplan Regional Sustainability Principles assembled through the Imagine Central Arkansas process. The that have been developed by Metroplan and ICAP through the Jump Start Development Plans, of which this existing and needs Imagine Central Arkansas initiative. assessment is a part, are the first step toward implementation. In order to actually realize the development patterns necessary to Imagine Central Arkansas promote livability, the market for sustainable developments will have to be proved by creating specific development plans that Imagine Central Arkansas is the name used to identify the integrate housing design options, development economics, planning effort by Metroplan, the metropolitan planning municipal codes and regulations, and supportive infrastructure organization, to expand transportation choices in central investments, all carried out in accordance with the Livability Arkansas. Individuals, local businesses, corporations, Principles espoused by HUD. nonprofits, the state and local governments, colleges and The purpose of the Jump Start Development Plans are to universities, and special interest groups who share a common demonstrate how the Livability Principles can be integrated into passion for and interest in preserving our region’s rich culture, community design and implemented in existing communities to history and resources while providing transportation choices impact the larger region. Replicable and realizable plans will that contribute to quality growth and economic development be developed to educate, illustrate, regulate and set a path for are involved in the process. Imagine Central Arkansas strives to implementation of these recommendations. be all-inclusive so that each and every voice has an opportunity to be heard. Purpose of this Document Imagine Central Arkansas endeavors to engage citizens and other stakeholders in a dialogue about the future. With that This Existing Conditions and Needs Assessment report is in mind, the visioning process is broken down into five distinct essential in order to completely analyze a site for its character, objectives: public realm, private realm and eventual vision and potential • Listening to what Central Arkansans have to say about for economic, environmental and social sustainability, This the region, including: what they like and dislike, and most report takes into account many aspects of the site, namely: importantly, the future changes they would like to see in • Past and current master plans or vision plans; Central Arkansas. • Existing and proposed zoning, land use and development • Creating awareness about how residents and other patterns; stakeholders can get involved in Imagine Central Arkansas • Existing and proposed transportation and utility and have a voice in the future. infrastructure; • Educating citizens and stakeholders so that they can make

5 Increase Housing Choices + Land Use Diversity Increasing housing choices creates a market base that is not beholden to any one market swing. By increasing the number informed decisions about the future. of housing choices, a community can promote equitable and • Collecting feedback through many venues and affordable housing for people of all ages, incomes, races technologies. and ethnicities. This also increases mobility and lowers the • Prioritizing issues across the region, whether it’s investing combined cost of housing to encourage land use diversity. limited infrastructure dollars, preserving natural resources Support Environmentally Responsible Development or providing more options. Environmentally responsible development brings enhanced To learn more about Imagine Central Arkansas or to keep up on this transportation uses, encourages walkability and pedestrian Jump Start project, please visit: http://imaginecentralarkansas.org. activity, reduces harmful environmental agents and utilizes a community’s strengths to support revitalization. Environmental Evaluation Categories stewardship and resource efficiency are essential to development and the guiding principles. The Imagine Central Arkansas Partners (ICAP) identified twelve Imagine Central Arkansas/Jump Start “program elements” Provide Transportation Choices and through its planning process. These program elements include: Enhanced Mobility efficient mobility options, pedestrian design, housing choice, Providing more transportation choices leads to enhanced development diversity, educational opportunity, economic mobility in communities. The development of safe, reliable development, efficient growth, activity centers, quality places, and economical transportation not only decreases healthy communities, environmental stewardship, and resource household transportation costs, but also improves air quality, efficiency. During the application phase of this initiative, project reduces greenhouse gas emissions and promotes public proposals were evaluated in part based on their potential to health. Enhanced mobility also encourages pedestrian- further the program elements. oriented designs to make a community more walkable and Recognizing the interrelatedness of these elements, the pedestrian-friendly. consultant team grouped them into six broad categories that Enhance Economic Competitiveness were loosely based on the livability principles identified by the Federal government’s Partnership for Sustainable Communities. Enhancing economic competitiveness through reliable access The Figure below shows the Jump Start evaluation categories to employment centers, education, services and other basic (far right column), which guide the organization of this report, worker needs. These opportunities expand business access as well as their relationships to the program elements and to the regional markets and segue workers to education Federal livability principles. and employment opportunities throughout the community. Economic competitiveness also helps value the existing MATRIX OF EVALUATION community strengths and helps bring efficient economic growth to the area; strategically focusing on reduced leakage of purchases; increasing the value of properties to assist in The six evaluation categories are: (1) provide transportation public reinvestment in the future; and creating a place that choices and enhance mobility, (2) increasing housing and attracts others to visit the area. development/land use diversity, (3) enhance economic competitiveness, (4) support existing communities, (5) Create Quality Places + Healthy Communities quality places and healthy communities, and (6) support To create a quality place and a healthy community, the environmentally-responsible development. The evaluation unique characteristics should be enhanced and healthy, categories are used to organize the chapters in this report. safe, and walkable neighborhoods should be invested in. The preceding matrix summarizes the evolution of the Jump Utilizing the identity a community has already established Start Evaluation Categories, but, more importantly, hones the helps strengthen its collective core and can be used to bring guiding principles for this entire initiative. Through this process, economic growth and to improve public health. each policy, project and recommendation is focused on these Value Existing Communities guiding principles and moving forward, the success of these A community and neighborhood’s character should be projects will be measured by them. preserved and utilized to bring growth to the area. Targeting programs that encourage community revitalization without changing community character will safeguard rural landscapes and encourage the appropriate amount of economic growth and activity. 6 Table 1 - Matrix of Evaluation

CREATION OF THE JUMP START EVALUATION CRITERIA Partnership for Sustainable Communities Jump Start Program Jump Start Evaluation Livability Principles Elements Categories 1. Provide more transportation choices. Develop safe, reliable, and economical transportation choices to Efficient Mobility Options decrease household transportation costs, reduce Goal Area 1: Provide the nation’s dependence on foreign oil, improve transportation choices and air quality, reduce greenhouse gas emissions, and enhanced mobility Pedestrian Design promote public health.

2. Promote equitable, affordable housing. Expand location and energy-efficient housing choices for Housing Choice people of all ages, incomes, races, and ethnicities Goal Area 2: Increase housing to increase mobility and lower the combined cost of choices and land use diversity. housing and transportation. Development Diversity

3. Enhance economic competitiveness. Improve economic competitiveness through reliable and timely access Educational Opportunity to employment centers, educational opportunities, Goal Area 3: Enhance services, and other basic needs by workers, as well as economic competitiveness. expanded business access to markets. Economic Development

4. Support existing communities. Target federal funding toward existing communities - through strategies like Efficient Growth transit-oriented, mixed-use development, and land Goal Area 4: Value existing recycling - to increase community revitalization and the communities. efficiency of public works investments and safeguard rural landscapes. Activity Centers

5. Value communities and neighborhoods. Enhance the unique characteristics of all communities by investing Quality Places, Healthy Goal Area 6: Create quality in healthy, safe, and walkable neighborhoods - rural, Communities places and healthy communities. urban, or suburban.

6. Coordinate and leverage federal policies and investment.

Goal Area 5: Support 7. Environmental issues are embedded in Livability Principles Environmental Stewardship environmentally responsible 1, 2, 4, and 6. Resource Efficiency development.

7 THIS PAGE INTENTIONALLY LEFT BLANK EXISTING CONDITIONS + CONTEXT

This section evaluates the existing context of 12th Street Core. organizations” (City of Little Rock 2014). The Center has a In general, the study area is described as area bounded by vested interest in the neighborhood and is also located next Lewis Street to the west, I-630 to the north, Maple Street to the door to the new Police Substation currently under construction east and 14th Street to the south. in the study area. The preliminary assessment is based on the consultant team’s Little Rock Central High School National Historic Site and assessment of the district through physical site survey, mapping, Visitor Center, a major attraction for the region, lies a mile east and interviews with stakeholders, as well as the application for of the study area. The site is recognized for the role it played the Jump Start program submitted by the City of Little Rock staff in the desegregation of public schools in the United States and and community members. also currently operates as a community high school. Adjacent REGIONAL CONTEXT to this site is the National Park Service office, which educates about the site and others in the region. Location of Study Area University of Arkansas for Medical Sciences is located just north of the study area across from I-630. This university is Arkansas’ Th e 12 th Street Core study area is approximately 74.4 acres only comprehensive academic health center and includes five and it is located 3 miles west of Downtown Little Rock. colleges and a graduate school. The William J. Clinton Presidential Center and Park is located in Nearby Attractions Downtown Little Rock. The center serves as an educational and cultural venue and hosts numerous events throughout the year. The Willie L. Hinton Neighborhood Resource Center is located in the center of the study area. The Center’s mission is “…to The River Market District, also located in Downtown Little Rock, build capacity within Little Rock Neighborhood Associations, also hosts several civic activities and events throughout the year Community Based Organizations, and small not-for-profit that serve the greater Little Rock region.

Existing Conditions in Little Rock

9 EXISTING CONDITIONS

12th Street Core Existing Zoning PD-R

PCD

PRD

PD-O

POD

Legend Study Area R3 PD C3 O1 O3 R2 R3 R4 0100 200 400 600 Feet ¯ R5 12th Street: Existing Zoning

10 HOUSING CHOICES + LAND USE DIVERSITY “...89 percent of households in the Central Existing Land Use and Zoning Arkansas region spend more than 45

Generally, existing zoning consists of commercial along 12th Street percent of their household income on and the frontage along I-630. In rest of the study area is extensive single-family development. While most of the single-family homes housing and transportation.” are inhabited, some are vacant and/or uninhabitable. heavily on housing costs. A common measure of housing Public Facilities, Parks, and Open Space affordability is whether the cost of housing accounts for 30 percent or less of a household’s budget. More recently, the focus No public parks fall within the boundaries of the study area. has shifted to consideration of housing and transportation (“H+T”) There are several city parks, including War Memorial Park, costs together, which can paint a more accurate picture of the Gulley Park, and Fletcher Park within a mile of the study area extent to which households are able to meet their basic needs. boundary. The study area is home to the Willie L. Hinton Households with little disposable income leftover after housing Neighborhood Resource Center and will be the future home of and transportation costs are covered may have difficulty meeting the mixed-use police substation. needs such as consuming healthy foods and receiving adequate medical care. In the Central Arkansas region, most areas have HOUSING + TRANSPORTATION COST affordable housing. Transportation costs, by contrast, account for a large portion of most household budgets in the region – nine Housing + Transportation Cost Burden in the percent more than housing costs. The Center for Neighborhood Central Arkansas Region Technologies, which created the H+T index, considers an area “affordable” if households spend 45 percent or less of their The question of how affordable an area is has often focused budgets on housing and transportation costs combined.1

Table 2 - Little Rock Existing Zoning Summary

Within the Potential Conflict Zoning Category Summary of Zoning Category Study Area? with Goals? General Commercial District For development of a broad range of general sales and service uses. Yes Yes (C-3) For office use providing for conversion of residential structures in older Quiet Office District (O-1) Yes Yes neighborhoods to uses compatible with existing residential neighborhoods. General Office District (O-3) For development of freestanding offices serving a broad range of public needs. Yes Yes For conventional single-family development with a minimum lot size of 7,000 Single-Family District (R-2) square feet. This District is the predominant single-family district within the City of Yes Yes Little Rock, west of University Avenue and south of Asher Avenue. For small lot single-family development with a minimum lot size of 5,000 square feet. This district, which permits duplexes as a conditional use, is Single-Family District (R-3) Yes Yes the predominant single-family district north of Asher Avenue and east of University Avenue. For the development of duplex dwellings with a minimum lot size of 5,000 Two-Family District (R-4) square feet. This district should be located in developed areas of the City with Yes Yes an environment suitable for moderate and medium density residential use. Urban Residential District (R-5) For apartment development at a maximum of thirty six (36) units per gross acre. Yes Yes

1 For more information, see http://htaindex.cnt.org

11 EXISTING CONDITIONS

7th St Existing Land Use

Oak St

7th St Maple St

7th St Interstate 630 Lamar St

Interstate 630 Interstate 630 8th St Interstate 630

Maryland Ave Maple St

Abigail St

10th St

Pine St

Oak St

Lewis St

11th St

12th St

13th St

Valentine St

14th St 14th St

Cedar St

Elm St

Legend Bishop Warren Dr 15th StudySt Area 15th St Accessory Buildings

Valentine St Retail/ Office

Maple St Multi-Family Public 16th St 16th StSingle-Family 12th Street: Existing Land Use

12 The figure below shows the housing and transportation costs Housing + Transportation Cost as Percentage of as a percentage of regional median income in the Little Rock/ Household Income in Central Arkansas North Little Rock/Conway MSA, as well as for each of the counties in the region. In all cases, transportation costs make up a larger share of household budgets than housing. When housing and transportation costs are considered together, 89 percent of households in the Central Arkansas region spend more than 45 percent of their household income on housing and transportation. This indicates that, despite the prevalence of affordable housing, households are widely burdened by housing and transportation costs. If fuel prices escalate, the H+T burden on the region’s households is likely to grow. The adjacent figure identifies the extent of heavy and severe H+T burdens on households in each of the region’s four counties. The percentage of household that are heavily (50 to 60 percent) or severely (over 60 percent) burdened is largest in Lonoke County (87.1 percent), closely followed by Pulaski County (85 percent). In Faulkner County, nearly three-quarters of all households (72.1 percent) are heavily burdened by H+T costs, but very few (1.2 percent) are severely burdened. By contrast, in Pulaski County, 54.5 percent of the population falls into these two categories (heavily and severely burdened). The

Housing + Transportation Cost as Percentage of Medium Income in Central Arkansas

13 EXISTING CONDITIONS

greatest concentration of severe H+T cost burdens is in Lonoke County, where more than one in four households spends over 60 percent of its budget on housing and transportation alone. It is important to note, however, that these percentages are based on the region’s median income; thus, households that earn significantly more income than the median may be less burdened by H+T costs, even if they spend more on housing and transportation than other households. Similarly, households with incomes lower than the regional median may be more burdened by H+T costs than these figures indicate. In the 12th Street project area, some areas are considered affordable, while households between Elm Street and Oak Street typically spend more than 45 percent of the regional median income on housing and transportation. Due to the low median income level in the project area ($19,167, which is approximately 40 percent of the regional median of $47,731), the burden of housing and transportation costs shown in Percentage of Income Spent on Housing and Transportation Costs within Study Area. the figures likely to be understated, with many households spending closer to 60 or 70 percent of their income on housing and transportation.2

2 2007 - 2011 ACS Five-Year Estimates

14 ENVIRONMENTALLY RESPONSIBLE DEVELOPMENT

Ecology + Habitat

Presence and condition of vegetation and street trees varies throughout the study area, with very limited street trees. 12th Street especially includes few street trees. Lack of street trees on 12th Street combined with narrow sidewalks immediately adjacent to the edge of traveled way and parking-dominated frontages contributes to an auto-oriented public realm suburban in character. An inventory of existing street trees is needed. The 12th Street Corridor Plan proposes street tree enhancement Although no public open space exists in the study area, for Cedar Street and Pine Street within the study area, and vacant,overgrown lots abound 2-lane complete street treatment including street trees, a median, and bike lanes, for 12th Street within the study area. Given the study area’s history and level of urbanization, it is unlikely that endangered species defined by the Arkansas Game & Fish Commission exist within the study area.

Topography

Based on site visits, slopes within the study area are generally low to moderate and should not present significant constraints to development or redevelopment within the central study area. The north end of the study area has the greatest slope, with steep slopes associated with nearby Interstate 630.

A path worn into the grass due to an incomplete or removed sidewalk Air Quality segment in the 12th Street Core plan area.

U.S. EPA has set National Ambient Air Quality Standards (NAAQS) for six principal pollutants, which are called “criteria” pollutants. No portion of central Arkansas has ever been designated a NAAQS “nonattainment” area for any of the six criteria pollutants. However, at various times since 1970, concentrations of ground- level ozone and particulate matter have threatened the region’s clean air status. Therefore, this discussion focuses on ground-level ozone and particulate matter. Also addressed are emissions of greenhouse gases, which are a growing concern due to their contribution to global climate change. Redevelopment of existing communities with a focus on providing transportation choices and diversifying the mix of land uses can help reduce air emissions and improve air quality if it lowers the number of vehicle-miles traveled in an area. A vacant and overgrown lot in the 12th Street Core plan area.

15 EXISTING CONDITIONS

400 Topography 396

398

396 394 392 390 394

398 396 394 388 390 408 406404

410

412 402 400

412

392

386

410 408

378 384

356

396

354 394

364 382

374

372 380 376

366

360

372

370 368

362 358

352

354 344 346

360 358 362 340

368 366 348

372 336

370 356 334 374 342 328 380 378 382 364

384 376 338 0100350 200 400 600 386 330 326 Feet ¯332

Source: Esri, DigitalGlobe, GeoEye, i-cubed, USDA, USGS, AEX, Getmapping, Aerogrid, IGN, IGP, swisstopo, and the GIS User Community 12th Street: Topography

16 Streams, Wetlands and Vegetation

Legend Study Area Streams 0100 200 400 600 Wetlands Feet ¯

Source: Esri, DigitalGlobe, GeoEye, i-cubed, USDA, USGS, AEX, Getmapping, Aerogrid, IGN, IGP, swisstopo, and the GIS User Community 12th Street: Wetlands/Vegetation

17 EXISTING CONDITIONS

Ground-Level Ozone Particulate Matter Particulate matter (PM) is a complex mixture of extremely small Ground-level ozone, the main component of smog, can particles and liquid droplets. Particle pollution is made up of trigger a variety of health problems including chest pain, a number of components, including acids, organic chemicals, coughing, throat irritation, and congestion. It can worsen metals, and soil or dust particles. The size of particles is directly bronchitis, emphysema, and asthma. Ground-level ozone also linked to their potential for causing health problems. Particles can reduce lung function and inflame the linings of the lungs. that are 10 micrometers in diameter or smaller can pass through Repeated exposure may permanently scar lung tissue. Ground- the throat and nose and enter the lungs. Once inhaled, these level ozone is not emitted directly into the air, but is created particles can affect the heart and lungs and cause serious health by chemical reactions between oxides of nitrogen (NOx) and effects. US EPA groups particle pollution into two categories: volatile organic compounds (VOCs). Motor vehicle exhaust • “Inhalable coarse particles” are between 2.5 and 10 and gasoline vapors are two of the major sources of NOx and micrometers in diameter. VOCs. Ozone is likely to reach unhealthy levels on hot sunny days in urban environments. • “Fine particles” are 2.5 micrometers in diameter and smaller. These particles can be directly emitted from sources such In 2008, EPA strengthened national standards for ground- as forest fires, or they can form when gases emitted from level ozone to 0.075 parts per million, averaged over an automobiles, power plants, and industries react in the air. 8-hour period. Thus far, the only county in Arkansas to be designated as part of a nonattainment area for the 2008 To date, no PM-10 or PM-2.5 nonattainment areas have been designated in Arkansas (see charts on page 19). However, in ozone standards is Crittenden County near Memphis, TN. the future, new or revised PM standards or a changing climate However, there are some days each year when ground-level could put central Arkansas at increased risk of nonattainment. ozone concentrations in central Arkansas exceed the 2008 The charts below show the relative contribution of mobile sources standard. Reducing vehicle miles traveled is one way to to PM-10 and PM-2.5 emissions in Pulaski County. The charts reduce ground-level ozone concentrations. indicate that mobile sources are not the predominant source The charts below show U.S. EPA data on the relative contribution of PM-10 emissions, but they are a relatively larger source of of mobile sources (e.g., automobiles, trucks) to Pulaski County’s PM-2.5 emissions. According to U.S. EPA, heavy-duty diesel- NOx and VOC emissions. Mobile sources are the primary powered vehicles are the largest on-road contributors to PM- source of both pollutants. 2.5 emissions in Pulaski County.

Nitrogen Oxides Emissions by Source Volatile Organic Compounds by Source

18 PM 10 Emissions by Source Sector PM2.5 Emissions by Source Sector

2011 Arkansas CO2 Emissions 2011 U.S. CO2 Emissions

Source: U.S. EPA, State Energy CO2 Emissions Source: U.S. EPA, Inventory of U.S. Greenhouse Gas Emissions and Sinks: 1990-2011

Greenhouse Gases comparable nationwide figure for transportation of 34 percent. Development patterns that result in fewer vehicle Greenhouse gases (GHGs) are any of the chemical compounds miles traveled will likely result in reduced GHG emissions in the atmosphere that contribute to the greenhouse effect. from the transportation sector. Although some greenhouse gases such as carbon dioxide (CO2) are produced and emitted through both natural processes WATER and human activities, other GHGs such as fluorinated gases are created and emitted solely through human activities. Recent state-level data on GHG emissions are limited to CO2 emissions Central Arkansas Water provides water supply to the study only. However, in 2011 CO2 emissions account for 84 percent area and is responsible for operation and maintenance of the of all GHGs emitted nationwide.3 County-level emissions data water distribution system. on GHG emissions are not readily available, but U.S. EPA does The project Jump Start application states that “sewer and compile some GHG emissions data at the state level. water upgrades and extensions are being installed during As shown in the charts above, transportation contributed the construction of 12th Street Police Station which will be 30 percent of all CO2 emissions from fossil fuel combustion completed in July of 2014. The installation of these lines will also in Arkansas in 2011. This proportion is slightly less than the help accommodate future growth in the Pine and Cedar area.”

19 EXISTING CONDITIONS

Additional information is needed to determine water distribution Additional information is needed to determine drainage system system mapping, capacity, and condition. location, capacity, condition, outfalls, connections to the larger City system, and future capital projects. Wastewater FRANCHISE UTILITIES Little Rock Wastewater is responsible for operation and maintenance of the wastewater system in the study area. The Gas, Electric and Telecommunications Rose Creek Capital Project has been identified by Little Rock Wastewater in or near the study area, with a 2015 projected Electric and telecommunications service within the study area completion date. appears to be primarily via overhead wires and poles. The project Jump Start application states that “sewer and Utility mapping, system capacity, and system condition is water upgrades and extensions are being installed during needed. the construction of 12th Street Police Station which will be completed in July of 2014. The installation of these lines will also Brownfields help accommodate future growth in the Pine and Cedar area.” Additional information is needed to determine wastewater A brownfield is a parcel of property where commercial, system mapping, capacity, condition, and future capital projects. industrial, or agricultural use may have contaminated the site with a hazardous substance, thereby complicating prospects Drainage and Floodplain for expansion, redevelopment, or reuse. Searches were conducted for the Jump Start project area in the following Per City of Little Rock mapping there are no flood prone environmental mapping tools: areas within the study area. Additional information is needed • U.S. EPA’s Cleanups in My Community3 regarding existing flooding concerns and topography. • Arkansas Department of Environmental Quality’s The City of Little Rock Department of Public Works is responsible for Brownfields Viewer4 operation and maintenance of the City’s storm drainage system. Runoff from the majority of the study area is conveyed via curb and Neither mapping tool includes any brownfield sites in or near gutter to an underground pipe drainage collection system. the Jump Start project area in the 12th Street project area.

Existing Stormwater Management Infrastructure in the 12th Street Core Plan Area

3 http://water.epa.gov/polwaste/green 4 U.S. EPA, Cleanups in My Community, accessed January 2014, http://ofmpub.epa.gov/apex/cimc/f?p+cimc:63.

20 TRANSPORTATION CHOICES + MOBILITY businesses and community users, and accommodate both local and pass through vehicles. The 12th Street study area has recently benefited from forward- Our initial assessment is that “getting transportation right” on thinking planning and investment in creating multimodal streets. in the 12th Street neighborhood will be critically important Most notably, the 12th Street Corridor Plan proposed a redesign to build on the recent momentum to revitalize this area (and of 12th Street that would make it safer and more pleasant to walk an essential outcome of this planning process). The 12th and bike along this street while still accommodating local and Street neighborhood has a long and proud history, but the through automobile trips. In addition, this neighborhood has better neighborhood’s existing transportation infrastructure is failing transit service than any of the Jump Start plan areas. However, to meet current needs. To put it more bluntly: it will be difficult even with these improvements, the 12th Street neighborhood to revitalize this historic neighborhood without significant faces some of the most daunting transportation barriers, including improvements to the street network and addressing connectivity poor condition and maintenance of local sidewalk network and barriers that isolate the neighborhood from the rest of the City. a lack of pedestrian and bike connections across I-630. These transportation barriers isolate the neighborhood from adjacent Transportation Demographics employment and service centers. This section contains a brief summary of the transportation assets, The 2012 American Community Survey (ACS) shows that just challenges, and opportunities in the 12th Street Jump Start plan over 61 percent of households in Little Rock own two or more area. It is intended to inform the development of a community- cars, just over 85 percent of Little Rock workers commute to based vision for how to improve transportation choices in the work in a single-occupant automobile, and mean travel time area, as well to help prioritize investments in new infrastructure to work was almost 19 minutes. These figures are not too to create better walking and biking conditions, establish dissimilar from state and national averages. It is worth pointing potential new transit connections and amenities, create more out that nearly 55 percent of Little Rock households own 1 car convenient and efficient parking arrangements for commercial or less (with over 9 percent of households owning no car at all).

12th Street Corridor Plan previously completed by Crafton Tull Source: Crafton Tull

21 EXISTING CONDITIONS 7th St

Master Thoroughfare Oak St 7th St Maple St

7th St Interstate 630 Lamar St

Interstate 630 Interstate 630

8th St Interstate 630

Maple St Maryland Ave

10th St Pine St

Oak St

Lewis St

11th St

12th St

13th St

Valentine St

14th St 14th St

Cedar St

Elm St

Bishop Warren Dr Legend 15th St COLLECTOR 15th St FREEWAY

Valentine St

Maple St MINOR ARTERIAL 0100 200 400 600 Study Area 16th St Feet ¯ 12th Street: Master Throughfare

22 Existing Policies, Plans + Infrastructure either significant repair or complete reconstruction. • The sidewalk network provides an extremely poor level Policies of service and amenity for pedestrians, with sidewalks Key transportation policies relevant to the achieving the goals absent on most blocks. On blocks where sidewalks are of the 12th Street Jump Start plan include: present, they are typically narrow, have frequent barriers and obstructions, and are poorly maintained. Typical • Complete Streets Ordinance. The Board of Directors pedestrian conditions on 12th Street and intersecting adopted a resolution of intent to adopt a Complete Streets streets are shown on page 22. ordinance in April 2013. The resolution directed the City to update the Master Street Plan and Boundary Street • As discussed in the “recent Initiatives” section, a bike lane Ordinance within 12 months to incorporate a Complete in each direction was striped on the 12th Street corridor Streets Policy. To our knowledge an actual complete providing a rare connection between the neighborhood streets policy has not been adopted or integrated into and the rest of the City’s bike network. updated transportation policy documents. • CATA provides bus service to the neighborhood in the form Plans of the #3 Baptist Medical Center / Downtown line that runs along 12th Street This neighborhood has good accessibility • 12th Street Corridor Plan (2010). As shown in the map to bus stops, with 9 bus stops in the plan area. below, the 12th Street Corridor Plan proposed a number of transportation and streetscape improvements. In the Jump Start plan area, these included a “road diet” for 12th Street that has already been implemented (see Recent Initiatives section for more information). • Master Bike Plan (2011). The City’s bicycle plan has identified a robust citywide bicycle network. The map on Page 22 shows the bike network in the Jump Start plan area, and illustrates the importance of the 12th Street bike facility in connecting the neighborhood to the rest of the city’s bike network and how limited bike paths crossing I-630 and other major highways reduces bicycle connectivity from this neighborhood to rest of the City, regional trails, and river crossings. • University of Arkansas Medical School (UAMS) expansion. It is our understanding that the UAMS is planning for a major expansion, and as part of that expansion are in conversation with the City and State Department of Highways to re-evaluate the access between their campus and I-630. The Jump Start plan offers an opportunity to collaborate on the crossings over I-630 to establish mutually beneficial connections between the Map of Bike Routes within Central Little Rock neighborhood and the major employment and services at Source: City of Little Rock the UAMS campus.

Infrastructure Auto Traffic Volumes

The primary transportation infrastructure in the 12th Street plan As shown in the map on next page average daily traffic (ADT) area consists of: auto volumes for the plan area age generally quite low relative • The local street network consisting of vehicular and pedestrian to the existing street capacity, especially on residential streets. travelways, as discussed in more detail in the next section. The following are the available ADT volumes for the streets in Most of the streets in the area are degraded and in need of the study area:

23 EXISTING CONDITIONS

7th St

Jack Stephens Dr

7th St Oak St 7th St

Traffic Counts Maple St

Interstate 630 Lamar St

Interstate 630 93,000 Interstate 630

Interstate 630

8th St

Maple St Abigail St

Maryland Ave 4,600 4,500

Lewis St

10th St

11th St

12th St 9,300

Valentine St

13th St

Cedar St

14th St

Oak St 14th St

Maple St

14th St

Pine St

15th St 15th St

Valentine St

Legend Elm St

Bishop Warren Dr 0100 200 400 600 Study Area Feet ¯ 16th St 12th Street: Master Throughfare

24 • S. Cedar Street (between W. 8th and W. 9th Street.): 4,600 I-630 isolates the neighborhood, and this planning process • W. 12th Street (between S. Oak and S. Pine Street).: 9,300 represents an opportunity to collaborate with UAMS’ expansion and access plans to create mutually-beneficial connections. • ADT counts for other streets in the plan area were not available for evaluation. Finally, there is a low-level of amenity at transit stops, considering the low levels of auto ownership in the neighborhood and large Because a traffic engineering “rule of thumb” is that each travel number of transit riders. Improving bus stops would be a cost- lane can handle 10,000 cars per day, this would suggest that effective strategy that would benefit transit riders and have a the two-lane cross-section of Cedar and 12th Street should placemaking effect by improving the streetscape condition. easily be able to handle at least 20,000 ADT, and likely up to 25,000 ADT with optimized signal plan and strategic turn lane Recent Initiatives + Investments locations. Finally, while ADT is an interesting and important metric, from a street design perspective it is more important to There have been two recent initiatives undertaken or investments solve for “rush hour” traffic congestion (known as AM peak made in the 12th Street plan area that related to transportation. and/or PM peak). No data on AM or PM peak hour traffic These are: volumes data was made available for analysis. • The City recently implemented a road diet on 12th Street Access + Circulation Constraints and Opportunities as recommended in the recently adopted corridor plan. This restriping transformed the formerly 4-lane cross- The map shown on Page 22 identifies some of the major access section into a 3-lane cross-section (one auto through lane and circulations constraints and opportunities. Local access in each direction with a center turn lane) with bike lanes within the plan area and regional access to and through the in each direction. The corridor plan also recommended plan area is relatively good due to the dense street grid and implementation of a landscaped median and additional regional road connections. However, as discussed above pedestrian realm improvements which can be undertaken the discontinuous sidewalk network is a major access barrier as a future phase. within the plan area that undermines the benefits of a gridded • Another project is the new mixed-use police substation. This street network. With wide rights-of-way, relatively low traffic facility is currently under construction includes expanded volumes, short block lengths, and platted mid-block alleyways, surface parking. If this parking facility can be shared with the 12th Street plan area has good potential for creating a community and church uses, it can help alleviate peak more pedestrian friendly transportation network. demand for on-street parking that occurs on certain blocks In addition, the lack of pedestrian and bike connectivity across during large community events or church services.

Several Sidewalk Improvements and Bike Infrastructure has been added to the area in recent years

25 EXISTING CONDITIONS 7th St

Government Buildings Oak St 7th St Maple St

7th St Interstate 630 Lamar St

Interstate 630 Interstate 630

8th St Interstate 630

Maple St Maryland Ave

10th St Pine St

Oak St

Lewis St

11th St

12th St

13th St

Valentine St

14th St 14th St

Cedar St

Elm St Legend

Bishop Warren Dr County Health Department 15th St 15th St City Community Center

Valentine St Police Substation Maple St 0100 200 400 600 Study Area Feet ¯ 16th St 12th Street: Government Properties

26 QUALITY PLACES + HEALTHY COMMUNITIES

HEALTH RESOURCES + RANKINGS and national outcomes on some indicators, while it under performs on others. Pulaski County performs particularly well on obesity rates and has a relatively high number of primary Connection of Health to the Imagine Central care providers, which makes it a medically well-served area. Arkansas Program Elements The County’s smoking and inactivity rates compare positively to state averages, but negatively compared to national rates. Fostering the development of healthy communities is one of the Imagine Central Arkansas program elements. In addition, a Access to Quality Foods number of Imagine Central Arkansas program elements have implications for the development of healthy communities: Consuming healthy foods a critical component of maintaining a healthy lifestyle, and livable neighborhoods should provide • Efficient mobility options and pedestrian design (2 residents with access to healthy food sources. According to the program elements) – Ensuring that roadways provide spaces CDC, only 20 percent of Arkansas residents consume five or for pedestrians and/or bicyclists enhances opportunities more servings of fruits and vegetables per day, as recommended for active transportation, which positively impacts health. by the USDA.6 In many cases, lack of access to healthy foods at Providing a variety of transportation choices can reduce travel reasonable prices is one cause of poor eating habits. As such, by personal vehicle and thereby improve air quality as well. enhancing access to healthy foods is an important component of • Housing choice, development diversity, an efficient improving dietary habits and health overall. growth (3 program elements) - When neighborhoods Currently, ten percent of Pulaski County residents have limited have a variety of housing choices and diverse types of access to healthy foods.7 In most cases, these residents are both development (i.e., mix of uses), it becomes easier for low income and live in locations with poor access to healthy residents to reach destinations (e.g., schools, shopping) food sources.8 Due to the prevalence of low-income residents using alternative modes of transportation including walking in the 12th Street project area, it is likely that the percentage of and biking, which have known benefits for health. Reduced residents lacking access (for monetary or accessibility reasons) automobile usage in mixed use areas can also lead to to healthy foods is even higher. improved air quality. There is a City Market grocery store in the 12th Street project area, • Environmental stewardship – Environmental located at 4110 West 12th Street. The closest farmers market to stewardship leads to improved air and water quality and the 12th Street project area site is at 1401 Main Street, which is reduces exposure to toxic materials, all of which lead to approximately 2.5 miles away from the Willie Hinton Center.9 improvements in human health. Walkable Communities Health Snapshot Each of the five Arkansas communities under the Jump Start The following data points provide a summary of how the health program wish to become more walkable, transforming key of Arkansas residents and Pulaski County residents compares streets into desirable place to walk, bike, shop, work, socialize to that of the US population.5 Pulaski County outperforms state and live. Over the years Dan Burden (Street Design Guidelines

5 Health data from national sources is generally available only at the state and county level – local data is needed to provide more geographically- targeted information. 6 CDC Behavior Risk Factor Surveillance System - Prevalence and Trends Data, 2009 7 2013 County Health Rankings 8 2010 USDA Food Environment Atlas 9 USDA “Know Your Farmer” Food Compass, http://www.usda.gov/wps.portal.usdausdahome?navid=KYF_COMPASS

27 QUALITY PLACES + HEALTHY COMMUNITIES

Table 3 - Health Indicators

Pulaski Pulaski County vs. U.S. Indicator National Arkansas Pulaski County vs. State County Population

Adult Asthma Prevalence1 13.4% 14.2% Unavailable N/A N/A

Diagnosed Diabetes 11.3% 9.2%4 11.1% Above State Rate Similar to National Rate among Adults 2,3

Obesity Rate5 35.7%6 34.5%7 32.0%8 Lower than State Rate Lower than National Rate

Smoking Rate9 17.3%10 22.9% 20.0%11 Lower than State Rate Higher than National Rate

Physical Inactivity Rate for 25.4%12 29.2%13 29.0%14 Similar to State Rate Higher than National Rate Adults

Ratio of Residents to 146315 147316 97817 Lower than State Rate Lower than National Rate Primary Care Physicians

1 Adult Self-Reported Lifetime Asthma Prevalence Rate and Prevalence by State, CDC Behavioral Risk Factor Surveillance System, 2011, http://www.cdc. gov/asthma/brfss/2011/brfssdata.htm 2 Age 20 or older.

3 National Diabetes Information Clearinghouse, 2011.

4 Age-adjusted CDC estimate for 2010 http://apps.nccd.cdc.gov/DDTSTRS/Index.aspx?stateId=5&state=Arkansas&cat=prevalence&Data=data&view=TO&trend=prevalence&id=1.

5 Data from 2010 unless otherwise noted.

6 Prevalence of Obesity in the United States, NCHS Data Brief No. 82, 2009-2010 Data, http://www.cdc.gov/nchs/data/databriefs/db82.pdf

7 CDC Adult Obesity Facts, 2012

8 2013 County Health Rankings and Roadmap

9 CDC Behavior Risk Factor Surveillance System, 2010 Prevalence and Trends Data

10 Median rate for all states.

11 2013 County Health Rankings and Roadmap

12 CDC, State Indicator Report on Physical Activity, 2010. http://www.cdc.gov/physicalactivity/downloads/PA_State_Indicator_Report_2010.pdf

13 CDC, U.S. Physical Activity Statistics, 2008.

14 2013 County Health Rankings and Roadmap

15 Marbury, Donna. “Primary Care Physician Shortage Will Hit Hardest in California.” Medical Economics, Nov. 10, 2013, available at: http:// medicaleconomics.modernmedicine.com/medical-economics/news/primary-care-physician-shortage-will-hit-hardest-california.

16 National Health Rankings, which used data from 2010-2011

17 2013 County Health Rankings and Roadmap

28 for Healthy Neighborhoods), Reid Ewing (Pedestrian and Transit- It is not just about if the streets feel complete; are there Friendly Design), Jeff Speck (Walkable City), John Massengale destinations, how attractive and authentic is a space, and does and Victor Dover (Street Design) have come up with very similar a person feel both secure and welcome in an area? conclusions on those features that are most needed to bring life This scoring system will allow each of the five communities to see back to a street. Each author tends to validate the work of the where and how they sit in relation to other communities across others. In his writings and presentations Dan covers the essences North America that also seek more walkable spaces. This gives of walkable places quite well, “… people tend to walk in places the community an opportunity to assess its performance on this and to places that give them the greatest security, convenience, street, and use the tool to assess streets that were not included, comfort, efficiency, and welcome.” but are of the same type of street. Some of the items on the list Our client seeks an assessment of baseline scores for each overlap. For instance it is hard to overlook the importance of an area we walked, so that over time changes in design, code edge, and meanwhile installing lamps and vertical walls of green and investments can be made and these priorities are justified also go into creating comfort. Meanwhile, areas that are green in the greater context of creating successful place. start to develop a needed aesthetic that helps define place. Each of these streets in this study area tends to be suburban in character, and each will benefit by creating good to great OUTDOOR ACTIVITIES walking spaces. So, our scoring sheets need to transform a range of first ring to second and third ring suburban areas. Some Open Space or most of these areas will move from strip, higher speed areas, to places that are authentic, character driven, worthy places that No community parks, conservation areas, or nature trails exist bring back the life and vitality of their neighborhoods. within the study area. John and Victor point out in their book Street Design, “…what The City’s Master Bike Plan and the 12th Street Corridor Plan makes a good street is not as subjective or as complex as propose the addition of bicycle lanes to 12th Street. The 12th some might think. In fact, making good streets comes naturally Street Corridor Plan proposes a trail connection on South to people, and has for thousands of years.” Even Dr. Suess Cedar Street from 12th Street north, crossing Interstate 630. lays it out rather simply in his book places to go, “You have brains in your head. You have feet in your shoes. You can HISTORIC PLACES AND LANDMARKS steer yourself any direction you choose. You’re on your own. And you know what you know. And YOU are the one who’ll decide where to go...” Preserving Neighborhood Character

Successful conservation of a neighborhood’s historic character is not an effort that operates in a vacuum; it is dependent upon Walkability Emphasis and contributes to other disciplines that make a community vital: strong transportation networks, skilled local labor, efficient • Security (Building Placement, Transparency) land use, sustainability, walkability, and countless, small signs • Comfort of investment—both public and private—that demonstrate a place’s uniqueness and value. • Enclosure and Human Scale • Edges The Neighborhood • ADA and Corners The 12th Street West neighborhood developed during the early • Crossings 1900s in response to an improved road surface on the 12th Street • Driveways Pike and the arrival of the City Electric Street Car Company’s Highland Park Line along 13th Street West. Workers who once • Green, Beauty, Imaginability needed to live within walking distance to factories and shops • Sidewalk Maintenance and Condition could find housing farther from the city center, just as the rapid increase in urban dwellers put pressure on the city to expand.

29 EXISTING COMMUNITIES

7th St

Historic Buildings in Study Area

Oak St

7th St Maple St

7th St Interstate 630 Lamar St

Interstate 630 Interstate 630 8th St Interstate 630

Maryland Ave Maple St

Abigail St

10th St

Pine St

Oak St

Lewis St

11th St

12th St

13th St

Valentine St

14th St 14th St

Cedar St

Elm St

Legend Bishop Warren Dr 15th EligibleSt in a Potential District 15th St Eligible

Valentine St Ineligible

Maple St Demolished Listed 16th St 16th StStudy Area 12th Street: Historical Properties

30 In the new neighborhood at the end of the Highland Park Line, in the National Register of Historic Places: the Robert E. Lee small, simple “folk” houses were built in the Gable Front, Gabled School was added to the Register in 2009. See the chart below Ell, Shotgun, and Craftsman styles. Although the imposing Robert for area properties that have been identified. E. Lee School (now the Willie L. Hinton Neighborhood Resource Center) was built in 1907 for white students, the residents were primarily mixed race and African American. Highland Park on 13th Street W between Valmar and Maple streets was an African American Park. “The homes of blacksmiths, porters, clerks, butchers, and janitors surrounded Highland Park at the end of the streetcar line. This working class settlement pattern continued into the twentieth century, aggravated by increasing separation of working classes.”10 Today, it is becoming more difficult to recognize the origins of the neighborhood, though, the current demographic hasn’t changed much. The residents are still predominately African American, still working class, still needing the area’s affordable homes. But scattered residential demolitions and new institutional buildings, with their attendant large parking lots, and are erasing the small residences and commercial buildings Lamberton Building, 3821 13th Street W that made this neighborhood viable. Fortunately, recent public policy has recognized the importance of preserving the original character of older neighborhoods by restoring and maintaining A context study and a comprehensive survey of the 12th the structures and landscapes that shaped their identities. Street West area should be done by a qualified historian as An important first step in any historic preservation effort is to a foundation for any preservation planning efforts in this area. understand the historic context in which a geographical area grew. A context study identifies the significant broad patterns Apart from their historical value, the remaining small, older of development that occurred and provides the basis for commercial buildings and houses in the neighborhood provide identifying historic properties in an area and evaluating their the affordable housing and small business locations that residents historical significance. While such a context study has never need. In a 2014 report released by the National Trust for Historic been developed for the 12th Street West area, at various times Preservation’s Preservation Green Lab, which compared urban some buildings have undergone a cursory identification in areas of three U.S. cities, it was found that “neighborhoods which basic property information is recorded on an inventory containing a mix of older, smaller buildings of diverse age form and filed at the Arkansas State Historic Preservation support greater levels of positive economic and social activity Office. Only one property within the study area has been listed than areas dominated by newer larger buildings.”11

Table 4 - Historic Properties in Community

Historic Name Address Current NRHP Status Robert E. Lee School 3805 12th Street W Listed Shotgun Style House 4010 10th Street W Eligible Lamberton Building 3823 13th Street W Ineligible Lee Theatre 3819 13th Street W Ineligible

10 National Register of Historic Places, Lee, Robert E., School Nomination Form, Little Rock, Pulaski County, Arkansas, National Register #358951, Sec. 8, Pg 5 11 Preservation Green Lab, National Trust for Historic Preservation, Older, Smaller, Better: Measuring how the character of buildings and blocks influences urban vitality, http://www.preservationnation.org/information-center/sustainable-communities/green-lab/oldersmallerbetter (May 2014)

31 Lee Theater facilities to accommodate both white and Negro patronage equally,” though, in reality, only the 200 balcony seats— Hidden inside the 12th Street West project area is a gem, a nearly one-fifth capacity—were available to blacks in a vestige of the commercial area that once grew up around the predominately black neighborhood. streetcar terminus at Pine Street South and 13th Street West— The Lee Theatre building has stood vacant for years, though the Lee Theatre. Although in a desperate state of disrepair, the an electrician’s shop may have occupied the building at one importance of this theater is that it may be the last remaining time and the nearby Robert E. Lee School may have used it for pre-World War II movie house in Little Rock that still holds storage, as evidenced by documents related to school lunches promise of serving it’s original function. At one time, Little Rock found on site. Currently, the Better Community Developers had around a dozen such theaters—the Roxy, the Pulaski, the (BCD) organization owns the property, having acquired it in Capitol—many of which were downtown and succumbed to 2002. Restoration of the theater would be a challenge: part of urban redevelopment. The Heights Theatre and the Nabor the roof and balcony has caved in, pigeons have taken roost, Theatre, both neighborhood theaters built in the mid-1940s, and the east wall may be structurally unsound. It is unclear are extant but nearly unrecognizable due to alterations for what is BCD’s intent for the property. reuses; the former contains retail businesses and the latter is an Islamic Center and market. Further research is needed to determine whether the theater is significant for its architecture, its status as the last of a building type The 950-seat Lee Theatre was built circa 1939 to replace a much smaller one-story theater on the same site. The new in Little Rock, and/or its potential to convey the story of racial theater was considered both more comfortable, with restrooms segregation. Additionally, a condition assessment must be done in the lobby, and made more economical by minimizing lobby to determine the structural stability and rehabilitation potential of space and maximizing the number of seats. the property. On a positive note, relative to other more elaborate architectural and decorative styles, Art Deco is an economical The Lee Theatre was designed in the Art Deco style by a style to restore and much of the effect depends on paint. Dallas-based architectural firm, Corgan and Moore. The firm’s principal, Jack Corgan, was a prolific theater architect whose Policy Guidance work includes at least three theaters listed in the National Register of Historic Places for their architectural significance. Many levels of public policy underscore the importance of A March 30, 1940, Boxoffice Magazine article describes historic preservation in older, urban communities and encourage in glowing detail the new theater’s architectural features and preservation strategies to restore the vitality and relevance of materials, many of which are still evident in the dilapidated areas, like the 12th Street West Corridor, that are at risk of losing building. “The Lee’s upper facade is of white stucco with three- their historical identity. colored porcelain enamel copings. Offsets appearing there were formed in the stucco finish...round openings shown are Federal steel casements...the facade is in glazed tile, deep maroon and cream in color...pastel paint in five shades of blue was sprayed In October 2013, the National Park Service, which on the walls of the auditorium...three streamlined bands near presides over the National Register of Historic Places and the top of the walls in the auditorium...” All of these elements administers funding for historic preservation planning to remain, though the marquee and box office have been lost. states, published its own planning document, Cultural “The site is an outlying middle-class residential section of Little Resource Challenge, set the following goal: “Connect Rock and the theatre of necessity must cater to both white and all Americans to their heritage resources in a manner that Negro patrons,” the magazine states. Nevertheless, racial resonates with their lives, legacies, and dreams, and tells the segregation inside theaters was common, with black patrons stories that make up America’s diverse national identity.”12 usually relegated to balcony seating. The article explains that Under the Obama administration, the Park Service has the primary objective for the new theater was “to provide for focused on identification of historic properties related to

12 US Department of the Interior, National Park Service, Cultural Resource Challenge: Preserving America’s Shared Heritage in the 21st Century, http:// www.nps.gov/history/Cultural-Resource-Challenge-Report-Part-I-Nov-8-2013.pdf (Oct. 2013), p. 7.

32 underrepresented communities through a series of Heritage City Initiatives highlighting various groups. On its website, HUD states that its “programs support and The Little Rock Citywide Historic Preservation Plan (2009) facilitate the use of historic properties for affordable housing, acknowledged that population loss and disinvestment in the economic development, and community revitalization. HUD city’s poorer central neighborhoods are to blame for neglect encourages the rehabilitation of historic buildings...”13 HUD’s and demolition of older properties. Historic preservation Community Development Block Grant Funds can be used for occurs unevenly in the city, with some areas experiencing historic preservation activities, provided they benefit low- and revitalization of older commercial buildings and housing stock moderate-income people, prevent/eliminate slums or blight, while other areas languish. Like the statewide preservation or address an urgent community development need. plan, the City’s plan focuses on identification of historic structures and stresses the benefits of historic preservation, such State a job creation, heritage tourism, quality of life, reduction of urban sprawl, and environmental sustainability. The Arkansas State Historic Preservation Plan 2013 is a comprehensive five-year planning tool to guide preservation Preservation of the neighborhood’s historic past was one of the activities, with an emphasis on building the state’s inventory of top priorities identified by stakeholders whose input was sought cultural resources. The plan gives priority to identifying and for the 12th Street Corridor Plan (2009). The plan encourages certain property types, among them resources associated with reuse of existing pre-World War II buildings and infill new minority culture and occupation within the state, 1866-1955.14 construction that matches them in scale, materials, form, and The 12th Street West neighborhood certainly meets these setback. Revitalization of the area around Cedar and Pine criteria. In addition, the Plan cites the state’s growing heritage streets (E-W) and between 13th Street and I-630, within which tourism industry as an opportunity to promote and increase use the Lee Theatre is located, was seen as a key catalyst area that of historic resources. If the Lee Theatre rehabilitation includes would spur development throughout the rest of the corridor. an homage to black cinema and an interpretive display about the history of segregation in movie houses, it likely will attract tourists visiting other civil-rights related sites.

Regional

A broad coalition of stakeholders charged with guiding development of a future regional plan, the Imagine Central Arkansas Partners, have identified six priorities for creating its vision of a better living environment in the Little Rock metro area. Applicable to preserving the cultural history of the 12th Street West area is Livability Principle #6: Value Communities and Neighborhoods, which supports activities that will “enhance the unique characteristics of all communities by investing in healthy, safe, and walkable neighborhoods...” Further, identifying the area’s historic buildings and restoring the Lee Theatre as a cultural focal point will fulfill Project Jump Start’s directive to “create quality places.”

13 Housing and Urban Development, www.hudexchange.info/environmental-review/historic-preservation (August 2014). 14 Arkansas State Historic Preservation Office, The Arkansas State Historic Preservation Plan 2013, p. 15.

33 THIS PAGE INTENTIONALLY LEFT BLANK STRENGTHS, WEAKNESSES, OPPORTUNITIES + THREATS

Strengths Weaknesses

• Existing street grid - A connected grid means • No current draw/ excitement - Although the pre-existing right-of-way as well as a well- Willie T. Hinton Center and the new Mixed-Use connected community. Police Station serve as the neighborhood center, • Low traffic volumes off 12th Street - By having the lack of a central draw results in little pedestrian low-traffic volumes off 12th Street, it provides activity and lingering in the central area. the unique opportunity to have pedestrian and • Deteriorating housing and building residential oriented side streets . conditions - Although many of the homes in the • Trees - Trees not only provide a pleasant pedestrian area are historic, many are in rapidly deteriorating environment through added shade and enhanced condition, greatly reducing their value while also safety, they also allow for adjacent buildings to producing vacancies that increase the lack of safety in the area. have reduced energy bills through shading. • Lack of safety - The 12th Street Core has higher • Historical Landmarks - Historical landmarks in rates of both minor and violent crimes than the neighborhood provide not only a neighborhood other areas of the city, producing a culture of center but also provide a neighborhood historical disinvestment from the area by outside investors. narrative that can help unify the community and • Bureaucratic red tape and uncoordinated encourage visitors to the area. programs - The City of Little Rock is a large city • Strong Neighborhood history - The 12th Street with numerous departments and a complex zoning Core neighborhood was first developed over code, making any project more arduous and one-hundred years ago as an historical streetcar complicated than other regional cities. neighborhood. This proliferation of historic homes • Limited open space - Although there are numerous and structures as well as history provides a rare parks within a few miles of the neighborhood, character to the neighborhood and produces no parks exist within the area, providing no open community cohesion. space for neighbors to recreate or congregate as a • Proximity to Interstate 630 - Over 100,000 community. cars travel down I-630 daily, meaning that the • Depreciated/depressed housing market - 12th Street Core lies in close proximity to the path Due to the overall poor conditions of the housing of many commuters, increasing potential demand stock and the high crime rate in the area, the for residential and retail markets. neighborhood has significantly lower property • Proximity to major employment centers - Lying values than other areas of the city. between major hospitals and the Central Business • Poor records of property titles - Due to the District of Little Rock, the 12th Street core has a unique high number of vacancies in the area, it makes position to capture residential and retail demand. restoration, purchasing, and even the taxing of • Community support for reinvestment - The 12th these properties more difficult. Street Core has community unity around economic • Lack of sidewalk/pedestrian infrastructure • Predominantly low-income community - Lower revitilization of their neighborhood that could income communities not only have less spending increase job opportunities, encourage economic power to drive retail markets but also have higher growth, and improve their quality of life. instances of crime and unemployment.

35 Opportunities Threats

• New Mixed-Use Police Substation - The police • Mistrust of outside investors/ UAMS station not only increase the perception of safety • Low demand for housing in neighborhood - in the neighborhood, it also represents a critical The previously-mentioned low property value in the reinvestment in the area by the city, which can neighborhood have made the area a little sought- hopefully become a catalyst for other projects. after destination, making new housing options a • Repaving /striping of 12th Street with bike more difficult sell in the future. lanes - The restriping of 12th Street reduced the number of traffic lanes to one in each direction, slowing traffic while also providing a critical pedestrian spine across the neighborhood. • Favorable State Historic Preservation tax credits - The 25% State tax credit for historical preservation, in addition to the 25% federal tax credit, makes rehabilitation and restorarion of historic properties a more feasible option. • Potential to serve as critical link between surrounding activity centers (UAMS to North, Downtown/ Children’s Hospital to east, Midtown/ UALR to west) - The 12th Street Core is strategically located in the middle of numerous job centers, making the site an opportunity for residential and retail reinvestment. • Improve multi-modal connections and safety - The new bike lanes have the potential to become a huge part of implementing a Complete Street along 12th Street. • Potential to work with landowners trying to make a positive impact on area • Expand housing options for residents to complement commercial nodes - Currently, the entirety of the residential-zones within 12th Street Core study area are single-family. New housing types provide opportunities for multiple generations and income levels with options.

36 MARKET ANALYSIS THIS PAGE INTENTIONALLY LEFT BLANK ZONING + OTHER POLICY MATERIALS THIS PAGE INTENTIONALLY LEFT BLANK PERFORMANCE MEASURES THIS PAGE INTENTIONALLY LEFT BLANK ADDITIONAL MAPS